## • 

# o JUt 1 8 2013
Is Board

(Slip Opinion) NOTICE: This opinion is subject to formal revision before publication in the Environmental AdrninistrativeDecisions (E.A.D.). Readers are requested to notify the Environmental Appeals Board, U.S. Environmental Protection Agency, Washington, D.C. 20460, of any typographical or other formal errors, in order that corrections may be made before pUblication.
BEFORE THE ENVIRONMENTAL APPEALS BOARD UNITED STATES ENVIRONMENTAL PROTECTION AGENCY WASHINGTON, D.C. ) ) In re: ) ) Sierra Pacific Industries ) PSDAppealNos.13-01,

(Anderson Processing Facility) ) 13-02, 13-03 & 13-04 ) PSD Permit No. SAC 12-01 )



# ------------------------ )
[Decided July 18,2013] ORDER REMANDING IN PART AND DENYING REVIEW IN PART Before Environmental Appeals Judges Leslye M. Fraser, Randolph L. Hill, and Kathie A. Stein.I N RE S I ERRA P ACI FI C I NDUS TRI ES ( AN DE RS ON P ROC E S S I NG F AC I L I T Y) PSD A ppe a l N o s . 13- 01, 13- 02, 13- 03 & 13- 04 OR DER R EMAND I

NG I N P A R T A ND DENYI NG REV

I EW I N P ART

D e c i de d J ul y18, 2013
Sylla bus Ms . C el est e Dra is n er, Mr . R o b Si m p so n , M s. Hei d i S tr an d , an dMr . E dW. Col eman (“ Petitioners ”) e ach pe tition t he EnvironmentalA

ppealsBoa

rd ( “B oard”) to rev iew a Cl ea n Air A ct prev ention o f

s ignif ic ant de terioration ( “PSD ”) permit, PSD P ermit No. SAC 12-01 , that the UnitedStates Environmental P rotectio n A gency (“ EPA ” or “Ag ency”) Re g ion 9 ( “Re g ion” ) i ssued to Si er ra Pac if icIndus tri es(“ Sierra Paci f ic ”) on Feb ru ary 2 2, 2013. The per mit aut horiz esSierra Paci f

icto cons truct a

nd operate a new

biomassand natural g asboil er in theCity

of A nder son in Sha sta County , C al if

ornia . B oth th e Regi o nand Sierra Paci f icf ile d re spons esto the Petitions , a

nd theparti ess ubse quently s ubmitt ed suppl ementalbri ef s in responseto a Boa rd order
. All of thePetitionersc hal leng e theRe g ion’sde ci si on not to hol d a publi c hearing o n the draft permit un der 40 C. F.R. § 12 4.1 2(a). Collectively , P etition ers also a s s e rt th at th e Re g i o n ma d e s e v e r al o th e r p r o c e dur al an d s ub s t ant i v e e rr o rs in approv ingthepermit, inc luding : e x em ptingthe p ropose d f

ac ility f rom c ar bon dioxide limits ; im

pro perly para phra sings ubmitt ed com ment s in t

he Re g ion’sre spons e to com ment s document ; f

ai lingto cons ider c om

ment s sub mitt ed dire ctly to thepermit w riter ins te ad o f t o the addre ssindi ca te d in theRe g ion’spubli c notic e; trea tingSierra P aci fic’ s p ro p o sedne w b o il er as a mo d ific at io nto it s curr ent P SD pe rmitin st eadof a new P SD s ourc e; im

properly e v aluatingtheair qual ity im pac tsof f ineparti cul ate matte r emiss io n s ; r e l yi n go noutd at edairmo d el s; an dfaili n g to co n si d er so lar en ergy and v ariations of the new boiler’ s f uel mix w

hen deter mining the bes t availa

ble cont rol te chnol ogy

(“ BACT ”)
. He ld: The Boa

rd gra ntsrev iew

of thep et it io n s in pa

rt and ordersthe Region to h oldap ub lic hearing. The Board d enies review of the various oth er proc eduraland s ubstantiv e challeng esthat Petiti oner s rais ed. (1) P ub lic Hea

ring Issue. The Boa rd hol ds that t

he Re g ion c le arly

erred in f ai lin g to gra

nt t he re ques ts f or a manda tory publi c hea

ringunder 40 C.F .R. § 124.12( a) (1)
. S p eci fically , theSI ERR A PAC I FI C I N D U STRI ES 2 Board h old s that the R egio n abu sed its discretionin determinin g w heth er there was a “signif icant degreeof public interest” in th e dr aft permit, th e trigg er und er section 12 4.1 2(a)(1) for w hen a publ i c hearing m

ust be held . The Board con clud es that t here isno bright-l inete st f or de f iningthi s standa

rd but that t he req u ir ementfo r a “s ignif ic ant d egre e” of

publi c intere st

mea ns that t here m ust bea s howingof

more thanjust “any

p ub l i c i nterest” to satisf

y the standard. The Board examinedthe degree of publi c intere st

in thedraf

t Si er ra Pac if icpermit by

c onsi deringthef

ollowing f ac torsidentif

ie d in EPArul e pre am ble s, pri or E PAAdminist rator and Boa rd dec is ions , a

nd theRe g ion ’sRe spons e to t he Petition a

nd SupplementalBrie f

: t he materialit y of theis sue s rais ed in com menter s’ re ques tsf

or a publi c hea

ring ; t he num ber of hea

ring requests and comments; the degree of publ ic interest in rel ated Stateor loc alproc ee ding s; theamount of medi a cov erag e; thes ignif ic anc e of the per mit ac tion; w

het her any s ubstitut e p roce sswasprovide d; a nd de mogra

phic informat i o n. The Board conclu des that sev eral of these f actors indi cate that th ere was a si gnif ic ant de gre e of

publi c intere st

in theSier

ra Pac if icpermit proc ee ding s and no ne of the f

actors sugg est otherwise. (2) Other Issues. The Board h old s f

urth er that the P etition ers fa i led to d emon strate that rev i e w i s w arr ant e d o n any o f th e o th e r i s s u e s th e y c h al l e n g e d
. S p e c i f i c al ly , the Boa rd r ule s that: (a) The Re g ion di d not cl ea rly err or abus e itsdi scr et ion in paraphrasing or sum

marizing pub lic com

ments; (b) Th e Regi o ndid not c le arly err or abus e itsdis cretion in e x cluding im pro perly submitted pub lic com

ments; (c ) The Re g ion di d not cl ea rly err or abus e itsdis cre ti o nin ca te g oriz ing Sierra Paci f ic ’s propos ed boiler as a “maj or mod ific ation ” rather than as a “major station ary

source”; (d) The Re g ion di d not cl ea rly err or abus e itsdis cre tion in i ts tre at ment of f ineparti cul ate matter emis si ons is sue s; and (e ) The Re g ion di d not cl early err or a buseit s dis cretion in deter miningthat t

he addition o f a

s ola r energy c om ponent or the alteration of

the90%bio mas s- 10% natural g asf uelmixwould “rede f inethes ourc e. ” Finally , the Boa

rd de cl ine s to reach thec hal leng e to t he Regi o n ’s de ci si on to rely on the Ag ency ’s c arbon di ox ide“ De f er ral R ule ,”pursuant

to w hic h theRe g ion def er re d c onsi deration of

Sierra Paci f

ic ’sbiog eni c ca

rbon di ox id e emis si ons. Inst ead, theBoa rd expec tsthat th e Re g ion willc onsi der thi s challeng e cons is tent with EPA ’s dec is ionson how

to proc ee d in thew ake of theUnite d Sta

te s Cour t of A ppealsf or t he District of Colum

bia Circuit’s recent vacatur of this ru le.SI ERR A PAC I FI C I N D U STRI ES 3 B efo re E n viro n m en ta l Ap p ea l s J u d g e s L e sl ye M . F ra ser, Rando l ph L. Hill

, an d Kat

hie A. Ste in. O p in i o n o f th e B o a rdb

y J u d g e Fra ser: I
. STA TEM

EN T O F T

H E C ASE M s . C e l e s t e D r a i s n er , M r . R o b Si m ps o n, M s . H e i di St r a nd, a nd M r . Ed W
. C ol em a n ( “Pe t i t i o ne r s ” ) e a c h pe t i t i o n the E n vi r on m ent al A p p eal s B oar d ( “B oar d ”) t o r evi ew a C l ean A i rA ct ( “ CA A ” ) pr e v e nt i o n o f s i g ni f i c a ntde t e r i o r a t i o n ( “ PSD” ) pe r mi t , PSD P erm i tN o. S A C 12
- 0 1 , th atth e U n i t ed S t at es E n vi r on m ent al P r ot ect i on A gency( “E P A ” or “ A g ency ”) R egi on 9 (“R egi on ”) i ss u ed t o Si e r r a Pa c i f

i c I ndus tr i e s ( “Si e r r a Pa c i f i c ” ) o n Fe brua r y22, 2013. T h e p erm i t aut h or i zes S i err a P aci f i c t o constru ct and op er at e a n ew b io m a ss a n d n a tu ra l g a s b o i l e r in th e C ity o f A n d e rs o n in S h a sta C o u n ty , C al i f

or n i a. B oth th e R egi on and S i err a Paci f i c have f

i l ed resp o n s e s t o th e P etit ion s. F o r th e re as o n s d iscu sse d b elo w , th e B o ard i s g r a nt i ng the pe t i t i o ns i n pa r ts o that a p u b l i c he a r i ng maybe he l d. T h e B oar d al so i s d eny i n g th e pet i t i on s i n parton var i ou s p ro ce d u r al an d su b stan ti v e c h allen g es th at P etit ion ers h av e ra ised
. I I
. I SS UES T h is a p p e a l p r e s e n ts th e fo llo w in g iss u e s fo r re so lu tio n b y th is B o a r d: ( A ) D i d the R e g i o n c l e a r l ye r ror abus e i t s di s c r e t i o n i n de c l i ni ng t o hold a pu b l i c hear i n g? ( B) Di d th e Re g i o n c l e a r l ye r ro ra b u s e i t s d i s c r e t i o n i n c h o o s i ng t o p a r a phr a s e o rs um m a r i z e c e rt a i n publ i c c o m m e nt s i n the cou rs e of r esp on d i n g to th ose com m en t s? ( C ) D i d the R e gi on cl e a r l ye r ro ra bus e i t s di s c r e t i o n byde c l i ni ng t o i n cl u d e i n th e a d m i n i str at i ve r ecor d pu b li c com m ent s th at we r e ma i l e d t o a n a d d r e s s o th e rth a n th e o n e s s p e c i f i e d i n t he p u b l i c not i ce?SI ERR A PAC I FI C I N D U STRI ES 4

A

“ m aj or s tationa

ry s ourc e”isany

of a li st of spec if icty pesof s tationa ry 1 source s that emit, or hav e thepoten ti al to emit, 100 t ons per yea r or moreof any “regulated NSR [ (New Source Review)] pol lutant,” as definedin 40 C.F.R. § 52 .21 (b)(5 0). 40 C.F.R. § 52. 21 (b)(1 )(i). A “major mod ific ation ” is “ an y phys ical cha ng e in or chang e in the met hod of operation of

a maj or s tationa

ry s ourc e”that would re sult in: ( 1) a “s ignif

ic ant emis si ons inc re as e, ” asde f ine d in 40 C. F.R . § 52. 21(b) (40)

(c ontinue d...) (D ) D id th e R e g io n c le a rly er r o r a b u s e i t s d isc re tio n in cat egor i zi n g th e propose d fac il i tyas a n ew “m aj or m od i f i cat i on ” r ath erth an as a new “m aj ors t at i on arys ou r ce” ? ( E) D i d the R e g i o n c l e a r l ye r ro ra bus e i t s di s c r e t i o n i n a na l y zi ng a nd tr e a t i n g f

i n e p a rt i c u l a t e ma t t e re mi s s i o n s f r o m the p r o p o s e d fa c il it y? (F ) D id th e R e g io n c le a rly er r o r a b u s e its d isc re tio n in d et erm i n i n g th atth e a d d i t i on of a sol arener gycom p on ent or a lte ra tio n o f th e 9 0 % b io m a ss -1 0 % n a tu ra l g a s f u e l m i x w o u ld
“ re d e fin e th e so u rc e ” a n d th e re fo re n e e d n o t b e c o n sid e re d in th e b e st a v a ila b le c o n tro l tec h n o lo g y an a lyse s fo r th e p roj e c t? ( G ) D i d the R e g i o n c l e a r l ye r ro ra bus e i t s di s c r e t i o n i n de f e r r i ng consi d er at i on of

ca rb on dioxi d e e m i ss i on s f r om th e propose d f aci l i ty , i n ac co rd an ce w i th an A gencyru l e th athad been app eal ed t o th e U n i t ed S t at es C o u r tof A p p eal s f

orth e D i str i ct o f C o lu m b ia C irc u it? I I I
. O VER VI

EW OFPSD LEGAL REQ U I REM EN TS P e t i t i o n e r s c h a l l e n g e a P S D p e r m i t i s s u e d u n d e rth e C AA
. T h e PS D provi si on s govern ai rpoll u ti on i n ce r t ai n ar eas , ca l l ed “a t t a i nm e nt ” a r e a s , whe r e the a i rq u a l i tymee t s o ri s c l e a ne rtha n the n a tio n a l am b ie n t air q u a lity sta n d a rd s, a s w e ll as in u n c la ss ifia b le a r e a s th a ta r e n e i th e ra t t a i n m e n tn o r“ n o n a t t a i n m e n t
. ” C AA §§ 160- 169, 42 U
. S. C
. §§ 7470
- 7 4 7 9; ac c or d I n r e Rock G e n Ener

gy C tr . , 8 E. A
. D
. 536, 541 ( EA B 199 9 )
. The s t a tut o r yPSD pr o v i s i o ns are l ar gel yca r r i ed ou tth r ou gh a r egul at or yproce ss th atr equ i r es new m a j o r sta tio n a ry so u rc e s, o r m o d ific a tio n s o f su c h so u rc e s, in 1SI ERR A PAC I FI C I N D U STRI ES 5

(.. .c ontinue d) 1 and (b )(23 ), of a

regulated NSR po llut ant; and(2) a “s ignifica nt n et emission s increase of that pollu tant from

the major station ary

source.” Id . § 52. 21(b) (2) (i)
. at t ai n m en t( or u n cl assif iab l e) ar eas, su ch as S i err a P acif i c’s b i om ass bo i l e r , t o o bt a i n pr e c o ns truc t i o n pe r m i t s pur s ua ntt o C A A § 165, 4 2 U .S .C . § 7 4 7 5
. S ee 4 0 C .F .R . § 5 2 .2 1 ; R o ckG en , 8 E. A
. D
. a t541; I n r e Knau

f Fi be rGl as s , Gm bH ( “Knau f I ”) , 8 E
. A. D. 1 2 1 , 1 2 3 ( E AB 1 9 9 9 ). T o ob t ai n a p erm i t , n ew m aj or st at i on ary source s or m od i f i cat i on s of

s u ch sourc es m u stem p loy th e “b es tava i l abl e c on tr ol t echn ol ogy ,” o r “B A C T , ” t o m i n i m i ze em i ss i on s of r egul at ed p o l l u t a n t s . C AA § 165( a ) ( 4) , 4 2 U. S
. C. § 7 4 7 5 ( a ) ( 4 ) ; 4 0 C. F
. R. § 5 2 .21 (j) (2 ). T h e st atu t e d efi n es th e B A C T r eq u i rem en t s as fol l ow s: The t e rm “be s ta v a i l a bl e c o ntr o l t e c hn ol ogy ” mea ns an e m i ss i on l i m i t at i on b as ed on th e m axi m u m d egre e of r edu ct i on of

ea ch p ol l u t ant s u bje ct to r egul at i on u n d erth is chap t erem i t t ed fr om orw h i ch re sul t s f r om any m a j o re m i t t i ng f

a c i l i ty , whi c h the pe r m i t t i ng aut ho r i ty , o n a c a s e - by

- c a s e ba s i s , t a k i ng i nt o a c c o unt e ne r g y , e nv i r o nm e n t a l , a nd e c o no m i c i m pa c t s a nd o th e r c o sts , d e te rm in e s is a c h ie v a b le fo r su c h fa c ility thr o ug h a ppl i c a t i o n o f pr o duc t i o n pr o c e s se s a nd a v a i l a bl e metho ds , s y s t e m s , a nd t e c hni que s , i nc l udi ng f u el cl eani n g, cl ea n f

u el s, ortr eatm ent ori n n ovat i ve f u el com b u st i on t echn i q u es f or cont r ol of eac h s u ch p o llu ta n t. C A A § 1 6 9 (3 ), 4 2 U .S .C . § 7 4 7 9 (3 ); a cco rd40 C. F. R
. § 52. 21( b) ( 12) ( s i mi l a r r e g u l a t o r y d e f i n i t i o n )
. As th e Bo a r d e x p l a i n e d i n In re Nor the r n Mi c higa n Uni v e rs i t y ( “NM U ”) , th e B A C T defi n i t i on r equ i r es perm i ti ss u er s t o “p r ocee d [ ] on a cas e- b y - cas e basi s, t aki n g a c a r e f ul a nd de t a i l e d l o o k , a t t e nt i v e t o the t e chn ol og yo rmetho ds a ppr o pr i a t e f

o rthe pa r t i c ul a rf

a c i l i ty , [ ] t o s e e k the r e s ul tt a i l o r - m a de f o rtha tf a c i l i tya nd tha tpo l l ut a nt
. ” P S D A ppe a l N o . 08- 02, s l i p o p. a t12 ( EA B Feb. 1 8 , 2 0 09) , 14 E. A
. D
. ___ ( c i t a t i o ns a nd quo t a t i o nsSI ERR A PAC I FI C I N D U STRI ES 6

The cons olida te d permit re gulationsals o a pply to Nati o nalPolluta

nt 2 Di scharg e Elimination Sy st em (“NPDES” ) per

mitsiss ued unde r se ctions318, 402, a nd 405 of theCl ea n W ater Act , 33 U .S.C . §§ 1328, 1342, a nd 1345; Underground Inje ction Control (“UI C” ) permitsis sue d under Part C of theSa f e DrinkingW ater

Act (“ SD WA ”) , 42 U.S.C. § § 30 0hto 30 0h -8; andhazard o u s was te management permits issued un der section 30 05 of the Resource Conservation andR ec o ve ry Act (“RCRA”), 42 U.S .C. § 6925. 40 C. F.R . § 124. 1(a). o m itte d ). B A C T is th e re fo re a site -sp e c ific d e te rm in a tio n t h a t re su lts i n th e s el ect i on of

an em i ss i on l i m i t at i on r epre se n t i n g ap p li cat i on of c o n tr o l te c h n o lo g y o rm e th o d s a p p r o p r ia te fo rth e p a r ti c u la rfa c il it y. I n r e Pr ai r i e Stat e G e ne r at i n g C o. , 1 3 E .A .D . 1 , 1 2 (E A B 2 0 0 6 ), a ff’d s u b n o m. S i e r r a C l u b v . EPA , 4 9 9 F .3 d 6 5 3 (7 th C ir. 2 0 0 7 ); In re Thr e e Mou ntai n Po we r, LLC , 1 0 E .A .D . 3 9 , 4 7 (E A B 2 0 0 1 ); K n a u f I, 8 E. A
. D
. a t128- 29. S ect i on 16 5 (a) o f th e C A A provi d es th ata P S D perm i tm ay n o t b e iss u e d u n le ss “ a p u b lic h e a rin g h a s b e e n h e ld w ith o p p o rtu n ity fo r i n t erest ed p erson s i n cl u d i n g rep resen t at i ves of th e A d m i n i strat or to a p p e a r a n d su b m it w ritte n o r o ra l p re se n ta tio n s o n th e a ir q u a lity i m p actof

s u ch sourc e, alte r n at i ves th er et o, cont r ol t echn ol ogy r e q u i r e me n t s , a n d o th e ra p p r o p r i a t e c o n s i d e r a t i o n s . ” 4 2 U. S
. C. § 7 4 7 5 ( a ) ( 2 )
. CAA s e c t i o n 1 6 0 ( 5 ) s p e c i f i e s th a t o n e p u rp o s e o f t he P S D p ro g ra m is to “ a ss u re th a t an y d e c isio n to p e rm it in c re a se d a ir p ol l u t i on * * * i s m ad e o n l yaf t er* * * adeq u at e proc edu r al o ppo r tuni t i e s f

o ri nf o r m e d publ i c pa r t i c i pa t i o n i n the dec i s i o nm a k i ng p ro c e ss .” 4 2 U .S .C
. § 7 4 7 0 (5 ). E P A ’ s c o n so lid a te d p e rm it r e g ul a t i o ns , whi c h i n pa r ti m pl e m e ntC A A § 160( 5) , s t a t e t h at the p erm i ti ss u er“shal l hold a pu b l i c hearin g w h eneverhe ors h e f i n d s, on th e b as is of re q u es ts, a sig n ifi ca n t d eg ree of p u b li c in terest in a d raft p e rm it(s ).” 4 0 C .F .R
. § 1 2 4 .1 2 (a )(1 ). T h e c o n so lid a te d p e r m it

2 re g u la ti on s al so give th e p erm i ti ssu er th e d i scret i on t o h old a p u b l ic h ear i n g “w h enever , f

ori n st ance, s u ch a h ea rin g m i gh tcl ar i f yone or m or e i ss u es i n vol ved i n th e per m i tdeci si on . ” Id . § 1 2 4 .1 2 (a)(2 ).

I V
. PROCEDU

RAL AND FACT UAL HI S TORY C u rre n tly, S ie rra P a c ific o p e ra te s a w o o d -fir e d b o ile r w ith a s s o c i a t e d a i r po l l ut i o n c o ntr o l e qui pm e nt a nd c o nv e y a nc e s y st em s atSI ERR A PAC I FI C I N D U STRI ES 7

A bone -dr y ton is 2 ,000 poundsof

wood pulp or res idueat z ero perc ent 3 mois turec ontent.

O n Marc h 3, 2003, EPA rev oked and re sc inde d SC A QMD ’sa uthority to is sue 4 and modif

y f ederal PSD per

mitsf or new and mo dif

ie d maj or s ourc esof

attainment pollutant s in Sha sta County , a nd now EPA is sue s such permits
. SeeAA QI R a t 3- 4. i t s l u m b erm anu f

actu r in g fac i l i tyi n A n d er son, C al i f or n i a. R egi on 9’s R e s p. t o the Pe t i t i o ns f or R e v i e w ( “Reg
. 9 Res p. ” ) a t t a c h. 1, e xc e rpt (“ ex c .” ) 1 , at 1 (E P A R eg ion 9 , Pr e v e nt i on of Si gni f i c ant D et er i o rat i o n P er m i tf o r S i er ra P a ci

f i c I n d u stri es , A n d erso n Fa ci l i t y, PSD Perm i tN

o. SAC

- 01 , a t 1 (F e b . 1 9 , 2 0 1 3 )) (“ P e rm it” ). T h e S h a sta Co un tyAi rQua l i tyM a na ge me ntDi s tr i c t( “ SCA Q M D ” ) i s s ue d a PSD p erm itfor th is b o il e r i n 1 9 9 4
. S ee R e g . 9 R e s p . a t2 n . 3
. O n M a rc h 2 9 , 2 0 1 0 , S ie rra P a c i f i c re q u e ste d th e R e g io n ’ s a p p ro v a l to c o n str u c t an d o p e ra te a t th is s a m e l o c a t io n a n e w c o g e n e ra tio n u n it b u r n i n g cl ean cel l u l osi c bi om as s d u r i n g n o rm al opera t i on s and natu r al g as for startu p a n d s h u td o w n . Id
. a t t a c h. 1, e xc . 2, a t3- 4 ( EPA R eg ion 9 , S ta t e m e n to

f B a sis a n dA m b ie n t A ir Q u a lity Imp a c t R e p o rt, S i e r r a Pa c i

f i c I n d u s tr i e s -An d e rs o n , PS D P e r mi t No

. S

AC 12- 01 (S e p t. 2 0 1 3 )) (“ A A Q IR ” ). S ie rra P a c ific ’ s p ro p o se d n e w c o g e n e ra tio n u n it i s t o be us e d f

o rpr o duc i ng s t e a m t o he a ti t s exi s t i ng k i l ns f o rdry i ng lu m b e r, a n d to g e n e ra te e le c tric ity b o th fo r u se a t th e S ie rra P a c i fic f a c i l i tyi n A nde r s o n a nd f o rs a l e t o the el ectr i c a l g r i d. Pe r m i ta t1; A A Q I R at4. S p eci f i cal l y , S i err a Paci f

i c in d icat ed t h atth e new p r op ose d boil erw i l l have th e capaci tyt o consum e a m axi m u m of 2 1 9 ,0 0 0 b o n e -d ry to n s (“ B D T ” ) o f b io m a ss p e r yea r. A p p r o x im a te ly 3 8 0 , 0 0 0 B D T w i l l b e gener at ed by th e f aci l i ty ’s exi st i n g lum b er op er at i o ns a ti t s c ur r e nto utput , a nd a ddi t i o na l woo d f ue l wi l l be tr ansp or t ed b ytru ck t o th e f aci l i ty fr om S i err a Paci f i c’s oth erl u m b er o pe r a t i o ns i n C a l i f

o r ni a . A A Q I R a t4. A l tho ug h the R e g i o n ha s r e pl a c e d the SC A Q M D a s the de l e g a t e d de c i si on m ake ro n PSD pe r m i t s , Sha s t a C o unty , unde rthe 4 C a l i f o r ni a Envi r o nm e nt a l Q ua l i tyA c t( “CE Q A ” ) , C a l
. Pub. R e s . C o de § § 21 0 0 1
- 2 1 1 1 7 , i s r equ i r ed t o eva l u at e th e e n vi r on m ent al consequ ences of

ce r t ain P S D proj ect s, s u ch as th e propose d cogener at i on un i tatth e Sie r r a Paci f i c f aci l i ty . T h e C E Q A r equ i r edSI ERR A PAC I FI C I N D U STRI ES 8 th e S h as t a C ou n tyD epar t m ent of R es ou r ce M anagem ent t o prepar e a n E n vi r on m ent al I m p actR eport( “E I R ”) th atconsi d er ed p ot ent i al i m pa c t s o f

the Si e r r a Pa c i f

i c pr oj e c to n “a e s the t i c s , a i rqual i tya nd gr eenh ou se gas es , biol ogi cal r es ou r ces , cu l tu r al r es ou r ces , geol ogy a n d so ils, h a z a rd s, h yd ro lo g y an d w a te r q u a l i t y, n o ise , p u b lic se rv ic e s/r e c re a tio n /u tilities , a n d tra n sp o rta tio n /c irc u la tio n .” S h a sta C o u n tyD ep artm en t of R es o u rce M an ag em e n t, Fi nalEI R f orthe S i er ra P a ci

f i c C o g enerat i o n P o w erP roj ect (M ay20 1 2 ) ( avai l abl e a t h ttp ://w w w .c o .s h a sta .c a .u s/in d e x / d r m

_ i n d e x / p l a n n i n g

_ i n d e x /e irs /sp i/ F in a l_ E IR .a sp x ); se e C al. P u b . R es . C o d e § 2 1 1 0 0 (a). Fol l o wi ng s ubm i s s i o n o f i t s M a r c h 29, 2010 a ppl i c a t i o n, Si e r r a Pa c i f

i c upda t ed i t s a ppl i c a t i o n o n J ul y1, 2010, a nd S ep tem b er 8 , 2 0 1 0
. S ee R eg . 9 R es p . att ach. 1, e x c. 6 (Let t erf r om G e ra r d o C . R io s, C h ie f, A ir D iv . P e rm its O ffic e , E P A R e g . 9 , to E ric Al b r i g h t , S e n i o rMg r . , EN VI RON I n t ’ l C o rp . ( Oc t
. 4 , 2 0 1 0 ) )
. O n O c to b e r 4 , 2 0 1 0 , th e R e g io n iss u e d a lette r to S ie rra P a c ific d eterm in in g th at it s ap p li ca ti o n w as ad m in istrative lyco m p lete, id .; h ow ever , th e R egi on , on seve r al occ as i on s, l at err equ es t ed i n f or m at i on fro m S ie rra P a c ific to c o m p le te its a ss e ss m e n t o f th e p e rm it a p p lic a tio n . I n re sp o n se , S i e r ra P a c ific su b m itte d a d d itio n a l d a ta r el at ed t o ai rqu al i tym o d eling on M ay30 , 20 1 2 , and add i t i on al in fo rm ation reg ard in g air q u alityim p ac ts i n J u ly2 0 1 2
. S ee R eg . 9 R esp . at2 & att ach. 1, e x c. 5 (Let t erf r om E r i c A l b r i gh t , S eni orM gr ., E N V I R O N Int ’l C orp . , t o G er ar d o R i os, E P A R eg. 9 (M ay30 , 20 1 2 ) ). O n S e p te m b e r 1 4 , 2 0 1 2 , th e R e g io n p ro p o se d to iss u e a P S D p e rm it fo r S ierra P ac ifi c’ s n ew co g en e r a ti o n u n it. Id . a tta c h . 1 , e x c . 3 , a t 3 (E P A R eg ion 9 , Res

pons e s t o P ubl i c C om m e nt s on the Pr opos e d PSD Perm i tMaj orM o d i

f i c at i on f orSi e r r a Paci

f i c I ndus tr i e s - Ander

s on D i v is i on 3 (F e b . 2 0 1 3 )) (“ R T C ” ). T h e R e g io n in itia te d a p u b lic com m ent peri od on t h e prop o sed perm i tth r ou gh a p u b l i c not i ce p u b l i shed i n a l ocal new spap er a n d a noti ce on th e R egi on ’s w ebsi t e. Id

. I n cl u d ed in th e n ot i ce w as a b r i ef descr i p t i on of

th e c ogener at i on uni tc o v e r e d bythe pr o po s e d per m i t , a nd i nf o r m a t i o n c o nc e r ni ng com m ent proce d u r es and w h er e docu m ent s r el at ed to th e R egi on ’s pe r m i tde c i s i o n c o ul d be a c c e s s e d. The no t i c e a l s o s t a t e d: P u rs u a n t to 4 0 C F R 1 2 4 .1 2 , E P A h a s d isc r e t i o n to h old a P u b l i c H eari n g if w e d et erm i n e th ere i s aSI ERR A PAC I FI C I N D U STRI ES 9 si gn i f i cantam ou n t o f pu b l i c i n t er es ti n th e propose d pe r m i t
. Reque st s f

o ra Publ i c H e a r i ng mus ts t a t e the na tu r e o f th e i s s u e s p r o p o s e d t o b e r a i s e d i n t he h e a rin g . I f a P u b l i c H e a rin g is to b e h e ld , a p u b lic no t i c e s t at i n g the da t e , t i m e a nd pl a c e o f the he a r i ng w i l l be m ade atl eas t30 day s p r i ort o th e hear i n g. R e a so n a b le a tte m p ts w ill b e m a d e to n o t i f y d ire c tly any pe rson w h o has c om m ent ed on th i s p r op osa l of any pen d i n g P u b l i c H ear i n g, provi d ed con t act i n f or m at i on has been gi ven t o th e E P A cont actpers on l i s t e d b e l o w. A n y in te re ste d p e rs o n m a y su b m it w ritte n c o m m e n ts orr equ es ta P u b l i c H ear i n g r egar d i n g E P A ’s proposed P S D perm i tf

orth is m od i f

i cat i on . A l l w r i t t en com m ent s and r equ es t s on E P A ’s p r op ose d ac t i on m u stbe r e c e i v e d byEP A v i a e - m a i l byO c t o be r17, 2 0 1 2 , o r p o stm a r k e d b y O c to b e r 1 7 , 2 0 1 2 . C o m m e n ts o r re q u e sts m u st b e se n t o r d e l iv e re d in w ritin g to O m e r S h a le v a t o n e o f th e fo llo w in g a d d re ss e s: E -m a il: R 9 ai rp erm i t s@ epa. gov U
. S. M a i l : O m e rSha l e v ( A I R
- 3) U
. S. EP A R e g i o n 9 7 5 H aw th or n e Str eet Sa n Fr a nc i s c o , C A 94105- 3901 Phone : ( 415) 972- 3538 R eg . 9 R es p . att ac h . 1 , e x c . 8 , at 1
- 2 (E P A R eg ion 9 , P u b l i c N o t i ce: Ann o u n c e me n t o

f Pr o p o s e d Pe r mi t Mo d i

f i c a t i o n a n d Re q u e s tf or P u b lic C o m m e n t o n P ro p o se d[ P S D ] P e rm it fo r S ie rr a P a c ific I ndus tr i e s - Ander

s on D i v is i on 1
- 2 (S ep t. 1 2 , 2 0 1 2 )). T h e R e g io n d istr ib u t e d t h e n o tic e to th e p a rtie s s p e c ifie d in 40 C
. F. R
. § 124. 10( c) , w hi c h i de nt i f i e s the pa r t i e s tha tmus tbe no t i f i e d i n pe r m i tpr o c e e di ng s . I ts e nta ppr o xi m a t e l y800 not i ces by U
. S
. m ail an d anot h er65 0 by el ectr on i c m ai l , al th ou gh th e R egi on acknow l edges th atth is d o es not am ou n tt o noti f i cat i on of

1,45 0 part i esSI ERR A PAC I FI C I N D U STRI ES 10

See

Fe deral Actionsto Addres s En vir o nmenta l Ju st ic e inMi n o ri ty P o p u lations 5 and L ow -Income Populati ons, Ex ec . O rder 12, 898, 59 F ed. Re g . 7629 ( Feb. 16, 1994) (c ontinue d...) b e c a u se th e re is s o m e o v e rla p b e tw e e n th e p a rtie s re c e iv i n g U
. S
. m a il a nd e l e c tr o ni c mai l no t i f i c a t i o n. Reg
. 9 Res p. a t3. N ot i f i ed o r g a ni z a t i o ns a nd ind i v i dua l s i nc l ude d s t a t e a nd l o c a l g o v e r nm e nt a g e nc i e s , a nd pa r t i e s who ha d r e que s t e d t o be puto n l i s t s c r e a t e d by th e R egi on of

part i es i n t er es t ed i n perm i tac t i on s i n C al i f or n i a, or w i th i n S h as t a C ou n ty , as w el l as part i es “kn ow n t o E P A th atm ayhave an i n t er es ti n th i s act i on . ” Id
. T h e R e g io n a lso p u b lish e d th e n o tic e in th e l ocal pap er fo r R edd i n g, C al i f or n i a, th e Rec or d Se ar c hl ight , and on R egi on 9’s w ebsi t e. T h e R egi on p ro v ided onlyan E n gl i sh ver si on of th e n o tic e b e c a u se its rev ie w o f th e d e m o g ra p h ic s o f S h a s t a C o u n ty in d icated th at on lya v ery sm all p erc en tag e o f res id e n ts w ere “l i ng ui s t i cal l y i s o l a t e d. ” RT C a t10. I n a ddi t i o n t o di s tr i but i ng the no t i c e , the R e g i o n made a v a i l a bl e ot he rdo c um e nt s r e l a t i ng t o the p r o p o se d p e rm it at th e R e g io n ’ s o ffic e , th e S C A Q M D ’ s o ffic e s in R edd i n g, the R edd i n g Publ i c Li br a r y , a nd o nl i ne at w w w . r eg u lati o n s. gov . S ee R eg. 9 R es p . att ach. 1, e x c. 8. T h e R egi on al so p u b l i sh ed t h e propose d perm i tand oth erm aj ordocu m ent s r el at ed to th e p erm iton it s w eb sit e. S e e id
. I n resp o n se to th e n o tic e, th e R eg ion rec eiv ed req u es ts for a p u b lic h e a rin g fro m tw o in d i v i d u a l s o n th e ir o w n b e h a lf, M s. P a tric ia Law r ence and M r . R ob S i m p son, and one r equ es tf r om an i n d i vi d u al r e p r e s e n t i n g a c o m m u n i tyo r g a n i z a t i o n , Ms
. He i d i S tr a n d
. O n Se pt e m be r16, 2012, two da y s a f t e rthe no t i c e wa s publ i s he d, M s . St r a nd made the f i r s to f s e v e r a l he ar i n g re que s t s . Reg
. 9 Res p. att ach. 2, ap p . A , at1 (E

- m ai l f r om H eid i S tr and t o O m arS h al ev, E n vt l
. E n g’r , E P A R eg. 9 (Sep t
. 1 6 , 2 0 1 2 )). T h i s r equ es ts t at ed i tw as he r“o f f i c i a l r equ es t fo ra he a r i ng r e g a r di ng the PSD c ha ng e f o rthe p rop osed S i err a P acif

i c C og en erat i on p l an t ” a n d i n cl u d ed a l et t er M s. S tran d h ad sen t t o S ierra P ac ifi c. Id . T h a t lette r, s e n t b y M s. S tra n d in h erca p aci tyas co- chai rof an or gani zat i on nam ed “ C i t i zens f orC l ean A i r , ” or“C C A , ” hi gh l i gh t ed an E P A poli cys tr es sin g th e need for v igo r ou s p u b l i c out r eac h by perm i t t i n g aut h or i t i es i n “en vi r on m ent al j u stic e ” c o m m u n itie s a n d a rg u e d th a t a n e w p e rm it, n o t ju st a p e rm it 5SI ERR A PAC I FI C I N D U STRI ES 11

(.. .c ontinue d) 5 (direc ting f ederal ag enc ie s to “make achiev ingenv ironmentaljus tic e par t of it s mis si on by identi f ying and addressing, asappro priate, di spro po rtion ately high a nd adverse human health or env ironmentale ff ec tsof it s progra

m s, poli ci es , a

nd a ctiviti eson minority populati o ns and low -inc ome populationsin theUnite d Sta te s and itsterritorie s and po ssess ions , the Di st

rict of Colum bia , the Com

monw ealth of

Puerto Ri co, and the Com monw ealth of

theMa ria na Is la nds” ). m od i f i cat i on , w as need ed forS i err a P aci f i c’s proposed n ew co g en era ti o n u n it
. Id
. a t2. T he R e g i o n r e s po nde d t o thi s he a r i ng r equ es ton O ct ob er1, 20 1 2 , i n f or m i n g M s. S tr and th ati t“d oes not c ur r e nt l ypl a n t o ho l d a publ i c he a r i ng f o rthi s pr op ose d a c t i o n” a s the R e g io n h a d “ n o t re c e iv e d a sig n ific a n t am o u n t o f p u b lic in te re st in th is pr oj e c to ra ddi t i o na l r e que s t s f o ra publ i c he a r i ng . ” Reg
. 9 Res p. a tta c h . 2 , a p p . 1 , a t 3 (E -m a il fro m O m e r S h a le v , E n v tl. E n g ’ r, A ir P erm it s D iv., E P A R e g . 9 , t o H eid i S tran d (O ct. 1 , 2 0 1 2 )). M r . Sha l e v ’ s r e s po ns e a l s o no t e d tha t , i f M s . St r a nd st i l l d e s i r e d a publ i c he a r i n g, sh e “ m us ts t a t e the na tur e o f the i s s ue s pr o po s e d t o be r a i s e d a tthe he a r i ng * * * and [t h e R e g i o n] mus tr e c e i v e i ndi c a t i o ns th atth er e i s a s i gn i f

i cantam ou n tof

pu b l i c i n t er es t
. ” Id
. O n th e s am e dayth ats h e r ece i ved t h i s e- m ai l f r om M r . S h alev, M s. S tr and m ade h ers econd r equ es tf ora p u b l i c hear i n g. R eg. 9 R es p . att ach. 2, ap p . A , at4 (E

- m ail f r om H ei d i S tr and , C oC o o r di n at o r , C C A , t o O m a rSha l e v , Envt l
. Eng’ r , EP A R e g . 9 ( O c t
. 1, 2 0 1 2 , 2 0 :0 4 P D T ) )
. M s. S tr and i d ent i f i ed h er se l f

as th e c oco o rd in ato r for C C A . S h e state d t h at h er o rg an ization h ad “ o n lyh ea rd abou t th i s p r oje ct on th e d ay I or i gi n al l y w r ot e t o y ou . ” S h e a r gu ed th atth e “t h r es h ol d f

orpu b l i c i n t er es ti s l ow eri n E n viron m ent al Ju st i ce C om m u n i t i es” an d l i st ed fi ve i ssu es h er “ com m u n i ty ” i n t en d ed t o ra i se a tth e p u b l i c h e a r i n g , i n c l u d i n g q ue s t i o n s r e g a r d i n g th e BAC T m eth o d s t o b e u se d b yS ierra P ac ifi c a n d cu m u lati v e im p ac ts on air, w ater, an d w as te d isp o sa l f ro m th e c o g e n e ration u n it
. Id

. O ne o f the i ss u es i de nt i f

i e d byM s . St r a nd s pe c i f i c a l l ya ddr e s s e d the que s t i o n of th e sh o w in g th at w as n ec es sa ryto o b tain a p u b li c h ea rin g : “W h at are yo u r a g e n c [y’ ]s p r o c e d u re s fo r d e te rm in in g th e th re sh o ld re q u ire d to h ol d a p u b l i c hear i n g?” Id

. M s. S tran d ’ s p h rasin g of h er issu es for a he a r i ng s ug g e s t e d tha ts he wa s s e e k i n g furthe ri nf o r m a t i o n f

r o m theSI ERR A PAC I FI C I N D U STRI ES 12

The oth er f

our issues listed by Ms. Strand w ere: “(1) What metho ds of BACT 6 ( B e s t Av ai l a

bl e C ontr ol T e c hn ol ogy) ar e be i ng uti l i z e d by Si e rr a Pa c i f i c i n the new cons truction of

thi s Cog eneration pla

nt? ( 2) C an you provideus with a dis cus si on of the cum ulative im

pacts of air, water a

ndwaste disp osal metho ds pro po sedfo rt h i s new pro ject? (3) Can you pro vide any informationreg ardin g Sierra P acif ic’s environmental v iola tionsat t heir pre- exis tingSha sta County f ac ilitie s and operations ? * * * (5) W hy do esn’t EP A R eg i o n9 require Sierra P acif ic to secure a

new P SD P ermit f

or th is new f acility ?” R e g io n a t a h e a rin g ra t h e r th a n in d ic a tin g th a t sh e h a d in fo rm a tio n to p re se n t. Id
.

6 O n O ct ob er4, 20 1 3 , M r . S h al ev r es p on d ed t o M s. S tr and ’s se c o n d h e a rin g re q u e st. R e g . 9 R e sp . a t t a c h 2 , a p p . A , a t 5 (E -m a il fro m O m e r S h a le v , E n v tl. E n g ’ r, A ir P e rm its D iv ., E P A R e g . 9 , to H ei d i S tr and ( O ct
. 4, 20 1 2 , 17 : 0 8 P D T ) )
. H e r ef err ed M s. S tr and t o a Fa c tShe e to n the p r op os e d pe r m i t , “whi c h e xpl a i ns the ba s i s f o rthe p ro p o se d perm i t* * * and dis cuss es m any of th e c on cern s th aty ou ra ise in you r e -m a il re g a rd in g th e p roj e c t,” a n d e n c o u r a g e d h e r to su b m itw ritten co m m en ts b yth e O cto b er 1 7 , 2 0 1 3 d ea d li n e. H o w ev er, h e di d not r es p on d t o her q u es t i on abou tth e th resh ol d s h ow i n g need ed fo r ob tain in g a p u b li c h ea rin g . S e e id
. L ater th at sam e d ay, M s. S tran d fi led h er th ir d req u es t f o r a he a r i ng . Reg
. 9 Res p. at t ach. 2, a pp. A , a t6 ( E- m a i l f r o m H e i di S t r and, C o - C o o r di na t o r , C C A , t o O m a rSha l e v , EP A R e g . 9 ( O c t
. 4, 2 0 1 2 , 21 : 5 2 P D T ) )
. M s. S tr and i n d i cat ed t h atth e F ac t Sh eetdid n ot sa tis f y h e r o rg a n iz a tio n ’ s c o n c e rn th a t a n e w p e rm it, n o t a m o di f i c a t i o n, s ho ul d be r e qui r e d f o r the Si e r r a Pa c i f

i c pr oje ct
. S he cl ose d by s t at i n g, “A gai n I am req u es ti n g a pu b l i c hear i n g. ” Id
. The n e x td a y , Mr
. S h a l e v r e s p o n d e d t o Ms
. S tr a n d ’ s th i r d e - m a i l
. H e ex p lain ed th at R eg ion w as p ro p o sin g “ a P S D p erm itm o d ifi ca ti o n [for] a n a d d i t i o n a l c o g e n e r a t i o n u n i ta ta n e x i s t i n g f a c i l i ty . ” Re g . 9 Re s p. a tta c h . 2 , a p p . A , a t 7 (E -m a il fro m O m e r S h a l e v , E n v tl. E n g ’ r, A ir P er m it s D iv., E P A R eg . 9 , t o H eid i S tran d (O ct. 5 , 2 0 1 2 , 1 0 :0 6 P D T )). H e a l so r ef

er enced an exis t i n g coge n er at i on un i tadjac ent t o th e new u n it th a t w a s b e in g re g u la te d b y S C A Q M D a n d h e re f e r r e d h e r to S C A Q M D f

orm or e i n f

or m at i on on th is f

aci l i ty . M r . S h al ev di d not ad d ress M s. S tran d ’ s ren ew ed h ea rin g req u es t. S e e id
.SI ERR A PAC I FI C I N D U STRI ES 13

P etition er als o asserted that “since Shasta County is an Environmental Justice 7 com m un ity , the standardf

or review und er Environmental Just ice G uid elines in such com m uniti esise x ceptionally

low . Regi o n9 i s the le ad aswel l a s advis ory ag ency f or Ex ecutiv e Order s #12898 and #13563. It isre as onabl e to e xpec t t he highes t s ta

ndards f rom theRe g ion.”Re sp. to Order to Show Ca useat 3, In re Sierra Pac. Indus. , PSD A ppeal No. 12-03 (EAB De c. 21, 2012). Mr. Col eman submitt ed the petiti on on behal f of CC A ; Ms . Stra

nd and Ms. Drais ner

als o aremem

ber s of CC A . Reg . 9 Resp. attach. 2, app. A , at 2; D rais ner

Pet. f or Review

at 1. A d d i t i on al e- m ai l s f

ol l ow ed, i n w h i ch M s. S tr and cont end ed tha tthe ne w f

a c i l i t y w a s no tunde r g o i ng the f ul l PSD pe r m i t t i ng pr o c e s s . Reg
. 9 R es p . at t a c h. 2, a pp. A , a t8 ( E- m a i l f r o m H e i di St r a nd, C o - C o o r di na t o r , C C A , t o O m a r S h al e v , EP A R e g . 9 ( O c t
. 5, 2 0 1 2 , 10 : 3 9 P D T ) )
. I n a f i n al e- m ai l o n O cto b er 5 , 20 1 2 , M r . S h al ev st at ed : “ T h an k y ou again for y ou r i n t erest
. P l ease b e su re to su b m it w ritte n c o m m e n ts re g a rd in g you r c o n c e rn s b y th e e n d o f th e p u b lic c o m m e n tp e r i o d o n Oc t o b e r1 7 , 2 0 1 2
. ” R e g . 9 R e s p . a t t a c h
. 2 , a p p . A, a t9 ( E- ma i l f

r om O m e r Sh a l e v , Env t l
. Eng ’ r , Ai rPe r mi t s Di v . , EPA R eg . 9 , t o H eid i S tran d (O ct. 5 , 2 0 1 2 , 1 4 :2 7 P D T )). D iss a tisf ie d w ith th e R e g io n ’ s p re lim in a r y d e c isio n n o t to h o ld a publ i c he a r i ng , C C A pe t i t i on e d the B o a r d, o n O c t o be r16, 2012, s e e k i ng r e v i e w o f the R e g i o n’ s “he a r i ng de ni a l
. ” The pe t i t i o n al l eged th a t th e R e g io n e rre d b y: (1 ) a ss e rtin g [th e R e g io n ] “ h a d d i s c r e tio n to ho l d a P u b l i c H e a r i ng i f [ the R e g i o n] de t e r m i ne d the r e i s a s i g ni f i c a nt a m ou n t of publ i c i nt e r e s t , ” buta tthe s a m e t i m e no tpr o v i di ng a ny s i g ni f i c a ntde t a i l s o n wha tthe thr e s ho l d f o rthe publ i c t o o bt a i n a publ i c he a r i ng mi g h t b e; and ( 2) de t e r m i ni ng tha tno s i g ni f i c a nt a m ou n t o f

publ i c i nt e r e s te xi s t e d. Res p. t o O r de rt o Sho w C a us e a t3, 7 In re S i erra P a c. In d u s. , P S D A p p ea l N o . 1 2
- 0 3 (E A B D ec . 2 1 , 2 0 1 2 ). N o t i ng tha t40 C. F. R
. § 124. 19 do e s no ta l l o w a c ha l l e ng e t o a he a r i ng d en ia l u n ti l a fi n al p erm itd ec isi o n h as b ee n issu ed , th e B o ard d ism issed th is a p p e a l as p rem atu re. In re S i erra P a c. In d u s. , PSD A ppe a l N o . 12- 03, a t5 ( E A B D e c . 21, 2012) ( O r de rD i s m i s s i ng Pe t i t i o n f

o rR e v i e w W i tho utPr e j udi c e as P r e m a tur e l yFi l e d)
. The B o a rd p o in te d o u t th a t “ th e R e g io n still c o u ld d e c i d e i n re sp o n se to p u b lic c o m m e n ts to h o ld a p u b lic h e a rin g b e fo re iss u in g a fin a l p e rm it d eci si on . ” Id
. I n di s m i s s i ng the a ppe a l , the B o a r d e xpr e s s e d no op i n i on on th e m erits of C C A ’s cl ai m bu tdid i n d i cat e th atth e R egi onSI ERR A PAC I FI C I N D U STRI ES 14 sh o u ld “ [i]n its re sp o n se to c o m m e n ts d o c u m e n t, * * * p ro v id e a w e llr eas on ed ex p l anat i on of w h yi tdecl i n ed t h e c i t i zen gr ou p ’s r equ es tf or a pu b l i c hear i n g i n li gh tof th e s t atu t e a n d r egul at i on s and how i tt ook th e e n v iron m en tal ju s ti ce E x ec u ti v e O rd er in to ac co u n t. I n p articu lar, se e C A A § 1 6 5 ( a) ( 2 ) , 42 U
. S
. C
. § 7 4 7 5 ( a) ( 2 )
. ” Id
. a t6 n. 3. M s. P atricia L aw ren ce also su b m itted a w ritten req u es t f o r a p u b lic h e a rin g . R e g . 9 R e sp . a tta c h
. 1 , e x c . 9 (E -m a il fro m P a tric ia La wr e nc e t o EP A R eg. 9 ( O c t
. 17, 2012) )
. O n O c t o be r17, 2012, s he r equ es t ed t h atth e R egi on hold a pu b l i c hear i n g on a n u m b erof broad is s u e s ra is e d b y S i e r r a P a c if ic ’ s p r o p o s e d c o g e n e r a ti o n fa c il it y. S p e c ific a lly, M s. L a w re n c e su g g e ste d th a t a h e a rin g sh o u ld b e h e ld to a d d re ss : (1 ) t h e a d e q u a c y of th e e v a lu a tio n o f th e c u m u la tiv e im p a c ts of t ot al ai r p ol l u t i on i n C al i f or n i a’s u p p er cent r al val l ey ; ( 2 ) w h et h er a b i om as s p l ant s h ou l d be gi ven p r ef er ence overa sol arpan el m a n u f a c tu r e rin a ll o c a ti n g th e c le a n a irin th e u p p e r c e n tr a l v a ll e y; ( 3) whe the rB A C T w o ul d r e m o v e di o xi ns f r o m ho us e ho l d a nd i n d u str i al w as t es th atca n be b u r n ed atth e f aci l i ty ; an d ( 4 ) w h eth er b u r n i n g w ood w as t e w ou l d r el eas e a hu ge c arb on s i n k af f ect i n g gl ob al w arm in g . Id
. Si mi l a r t o M s . Str a n d ’ s r e q u e s t s , a s wor de d, M s . La wr e nc e ’ s he a r i ng r e ques t su gg e s t e d tha ts he a l s o wa s s e e k i ng i n f or m at i on on th es e p oi n t s f r om th e R egi on r ath er th an e x p r es si n g an in ten t t o p rese n t i n fo rm ation to th e R eg ion
. T h e th i rd r eq u est or w as M r. S i m p son , w h o su b m i t t ed a r eq u est f o ra publ i c he a r i ng wi th hi s wr i t t e n c o m m e nt s. Reg
. 9 Res p. att ach. 1, e x c. 9, a t5. U n l i ke th e o th er t w o r equ es t or s, M r . S i m p son s u b mi t t e d c o mm e n t s i n s o me d e t a i l , i n c l u d i n g c o mm e n t s o n th e BAC T and ai r q u al i ty i m p act anal y ses. Id
. at5- 8
. F orexam p l e, M r . S i m p son argu ed th atth e p rop osed f acil i ty ’s “ fu el m i x ” (i .e. , th e rati o of b i om ass t o natu r al gas bu r n ed i n th e n ew b o il er ) s h ou l d be eval u at ed as p artof th e B A C T an aly sis b e c au se a h igh er g as co m p o n en t w o u ld b u rn cl eanerand r edu ce faci l i tyem i ss i on s. H e a l so st at ed t h ata sol ar e ne r g yc o m po ne ntand e ne r g ye f f i c i e nc yo pt i o ns s ho ul d be i nc o rpo r a t e d i nt o the B A C T ana l y s i s . M r . Si m ps o n pr e s e nt e d a n u m b erof

oth erchal l enges t o t echn i cal and proce d u r al a sp ect s of Si e r r a Pa c i f

i c ’ s pe r m i t
. I n s o do i ng , he di d no te xpl i c i t l y l i s tthe m a t t e r s he i nt e nde d t o que s t i o n a ta publ i c he a r i ng , but a f a i rr e a di ngSI ERR A PAC I FI C I N D U STRI ES 15
o f hi s c o m m e nt s i ndi c a t e s tha t he s o ug ht f ur the r i nf

o r m a t i o n on a nd c o ns i de r a t i o n o f

e a c h o f tho s e i s s ue s bythe R e g i o n. A fter r eview i n g these req u est s, th e R egion d ecide d n ot t o h o ld a pu b l i c heari n g . I n i t s R es p on se t o C om m ent s d ocum ent , th e R egi on st at ed t h at“[n] on e of

th e r equ es ts fo r a p u b l i c hear i n g dem on str at ed tha tthe r e wa s s i g ni f

i c a ntpubl i c i nt e r e s ti n the Pr oje ct
. ” R TC a t10, 11, 38. O the rtha n ment i o ni ng the e xt e nto f i t s e f f o r t s t o pr o v i de n ot i ce of

th e propose d p erm i tand th atth er e had been f i f t een com m en ts on t h e propose d perm i t , th e R egi on provi d ed n o oth er e xpl a na t i o n f

o ri t s d e n i a l o f

th e h e a r i n g a n d a l s o f a i l e d t o a d d r e s s the “t h r es h ol d f

orholdi n g a p u b l i c hear i n g” qu es ti o n th atM s. S tr and had ra ise d in h e r O c to b e r 1 , 2 0 1 2 e -m a il to M r. S h a le v , o r th e a rg u m e n ts C C A h ad m ad e ch al l en gin g the p rel i m i n aryh eari n g d en i al i n i ts p rem atu re p etit ion
. Id
. a t10. A s s t a t e d a bo v e , M s . St r a nd, M r . S i m p s o n, M s . D r a i s ne r , a nd M r. C o le m a n file d p e titio n s a p p e a lin g th e R e g i o n ’ s fin a l p e rm it d eci si on t o th e B oar d
. A l l f ou rP et i t i on er s chal l enge t h e R egi on ’s de ni a l o f the r e que s t s fo ra publ i c he a r i ng . Pe t i t i o ne r s a s s e r ttha tthe
“ s i g n i f i c a n td e g r e e o f

p u b l i c i n t e r e s t ” s t a n d a r d i n 4 0 C. F
. R. § 12 4
. 1 2 ( a) ( 1 ) i s “n ebu l ou s” and th e R egi on has f ai l ed t o gi ve “an a c c ur a t e e xpl a na t i o n o f i t s thr e s ho l d r e q u i r em ent s . ” Si m ps o n Pe t
. a t5; C o lem an 1stA m . P et
. at4. P et i t i on er s al so ar gu e th atth e R egi on ’s R e sp o n se to C o m m e n ts d o c u m e n t fa ile d to p ro v id e a n a d e q u a te exp lan at i on of

w h yth e R egi on den i ed t h ei rhear i n g r equ es t s. S i m p son P et
. at5; D r ai snerP et
. at3; C ol em an 1 stA m . P et
. at7. M r . C ol em an sp ec if i cal l ycl ai m s th atth e R egi on did n otexp l ai n th e hear i n g den i al
“ in lig h t o f th e sta tu te ” a n d re fe re n c e s C A A se c tio n 1 6 5 (a )(2 ), w h ile M r . Si m ps o n c i t e s C A A s e c t i o n 160( 5)
. Col e m a n 1s tA m . Pe t
. a t7; Si m ps o n Pe t
. a t4. Fi na l l y , M r . C o l e m a n a s s e r t s t ha tthe he a r i ng de ni a l v i o l a t e d Exec ut i v e O r de r12, 898 o n Envi r on m e nt a l J us t i c e a nd E P A ’s en vir on m en t al ju st i ce gu i d el i n es an d p oli ci es. C olem an 1 st A m . Pe t
. a t5- 6. I n i t s r es p on se b r i ef

, th e R egi on ar gu es th at i t w as n o t r eq u ire d t o hold a pu b l i c hear i n g un d er40 C
. F
. R . § 1 2 4 .1 2 ( a) ( 1 ) because i thad “r e a s o na bl yde t e r m i ne d tha t* * * the Pr oj e c tdi d no tmee tthe th r es h ol d of

‘s i gn i f i cant ’ th atw ou l d m and at e a p u b l i c hear i n g. ”SI ERR A PAC I FI C I N D U STRI ES 16 R eg . 9 R es p . at 8 . T h e R e g io n j u d g ed th e p u b li c in terest in th e d raft pe r m i tt o be i ns i g ni f

i c a ntbe c a us e “o nl ya f e w i ndi v i dua l s r e que s t e d a p u b lic h e a rin g , o u t o f l i t e r a lly h u n d re d s o f p e rs o n s w h o w e re d ire c tly cont act ed ab ou tth e Proj ectb y R egi on 9.” Id
. a t8- 9. Fur the r , the R egi on defe n d ed n otgr ant i n g a h ear i n g “ to cl ar i f yth e i ss u es ” un d er i t s d i sc ret i on aryaut h or i tyi n 40 C
. F
. R
. § 1 2 4
. 1 2 ( a) ( 2 )
. T h e R egi on ar gu ed t h atbecause th e i ss u es r ai se d by r equ es t or s in v o lve d “i n q u i r i es r el at ed t o t op i cs al r eady i n cl u d ed i n th e adm i n i str at i ve r ecord ” or co u ld b e a d d ress ed b ya w ritten resp o n se , a h ea rin g w as n o t n ec es sa ry to cla rif yth e i s su es . Id
. at9- 1 0
. A s t o M r . C ol em an’s e n vi r on m ent al j u stic e c la im s, th e R e g io n a s s e rts th a t it ad e q u a te ly t o o k d e m o g ra p h ic i n f or m at i on on t h e c om m u n i tyi n t o ac coun t in desi gn i n g outr eac h m aterials. Id
. a t11- 12. B e c a u se n e ith e r th e R e g io n ’ s R e sp o n se to C o m m e n ts d ocum ent nor i t s r es p on se t o th e pet i t i on s d i sc u ss ed th e r el evance of C A A sec ti o n 1 6 5 to th e h ea rin g d en ial i ssu e t h a t tw o of th e P etit ion ers h ad ra i se d , th e B oar d dir ect ed t h e R egi on t o s u b m i ta sup p l em ent al b rief ad d ress in g tw o q u es ti o n s co n ce rn in g sec ti o n 1 6 5
. S ee O r d er D irectin g S u p p lem en tal B riefin g (M ay 1 6 , 2 0 1 3 ). F irst , t h e B o ard a sk e d h o w th e “ sig n ific a n t d e g re e o f p u b lic in te re st” sta n d a rd in 40 C
. F. R
. § 124. 12( a ) ( 1) s ho ul d be i n t erp r e t e d i n l i g hto f the r e qui r e m e nt s o n publ i c he a r i ng s i n C A A sect i o n 165. Se c o nd, no t i ng tha tthe he a r i n g requ es t o r s ha d, i n pa r t , s o ug hta he a r i ng f o rthe purpo s e o f

o bt a i ni ng c l a r i f

i c a t i o n o f

c e r t a i n i s s ue s f

r o m the R e g i o n, the Boa r d a s k e d wha twe i g htthi s f a c ts ho ul d be g i v e n i n l i g hto f the p u b lic p a rtic ip a tio n p o lic y en u n c ia t e d i n th e C A A , a n d th e lan g u a g e in s e c t i o n 165( a ) ( 2) i ndi c a t i ng that publ i c he a r i ng s pr e s e nt e d the “o ppo r tuni tyf

o ri nt e r e s t e d pe r s o ns i nc l udi ng r e pr e s e n t at i v e s o f the A d m i n i str at ort o app eara n d s u b m i tw r i t t en or or al pres ent at i on s” on c o n sid e ra tio n s re le v a n t to th e p e rm it. T h e B o a r d g a v e S ie rra P a c ific and th e Pet i t i on er s th e opt i on of r es p on d ing t o th e R egi on ’s su p p l em en t al b ri ef. T h e R egion , S i err a P acif i c, M s. S tran d , an d M s. D rai sn er s u b m i t t ed b ri efs ad d ress i n g the B oard ’s q u est i on s. P et i t i on er s al so h av e ra i se d a var i etyof oth erproce d u r al iss u e s, a s w e l l as su b sta n tiv e iss u e s, in th e ir a p p e a ls. T o p ro m o te e f f i c i e nc yi n the pe r m i ta ppe a l pr o c e s s, the B o a r d ha s de c i de d a n u m b e r of th ese i ssu es i n P art V I I .C b el ow . A d d i t i on al l y , i n P a rt V ISI ERR A PAC I FI C I N D U STRI ES 17 b el ow , th e B oard ad d res se s m oti on s f i l ed b yth ree of th e p et i t i on ers
– M r . C o l e m a n, M s . St r a nd, a nd M s . D r a i s ne r– r e que s t i ng th atthe B oard accep tl at e fi l i n gs.

V
. PRI NCI PL ESGO VERNI

NG BOARD REV

I EW Se c t i o n 1 2 4
. 1 9 o f

Ti t l e 4 0 o f

th e Co d e o f

F e d e r a l Re g u l a t i o ns g o v e rn s B o a rd re v ie w o f a P S D p e rm it. I n a n y a p p e a l fro m a p e rm it d eci si on i ss u ed u n d erpart12 4 , th e pet i t i on erbear s th e bu r d en of d em o n strati n g th at rev iew is w arra n ted
. S ee 4 0 C .F .R . § 1 2 4 .1 9 (a)(4 ). A
. S ta n d a rd o

f R evi ew T h e B o a r d h a s d iscretion w h eth er to re v iew a P S D p erm it
. In r e Av e na lPowe rCt r . , LLC , PSD A ppe a l N o s . 11- 02 t o 11- 05, s l i p op. at 1 4
- 1 5 (E A B A u g . 1 8 ) , 1 5 E .A .D . _

_ _ , a p p e a ld o c ke t e ds u b n o m. S i e r r a Cl u b v . EPA , N o . 1 1 -7 3 3 4 2 ( 9 t h C ir . N o v . 3 , 2 0 1 1 ) . O r d in a r il y, th e B oar d w i l l not r evi ew a P S D perm i tu n less th e per m i tdeci si on ei th eri s b as ed on a cl ear l yerr on eous fi n d in g of f actorconcl u si on of l aw , ori n vol ves a m att erof poli cyorexer ci se of discretion th at w a rra n ts re v ie w . 4 0 C .F .R . § 1 2 4
. 1 9 ( a ) ( 4 )(A )-(B ); a cco rd, e.g ., I n re P rai ri e Stat e G e ne r at i ng C o. , 1 3 E .A .D . 1 , 1 0 (E A B 2 0 0 6 ), a f f’ ds ub n o m. S i e r r a Cl u b v . EPA , 4 9 9 F .3 d 6 5 3 (7 th C ir. 2 0 0 7 ). W h e n ev alu atin g a ch allen g ed p erm itd ec isi o n for c lear e rror, th e B o a r d e x a m in e s th e a d m in istr a tiv e re c o rd th a t se rv e s a s th e b a sis f orth e per m i tt o det erm i n e w h eth er th e per m i ti ss u erexer ci se d his or h er“con si d er ed ju d g m en t
. ” S ee I n r e St eel

Dyna m i cs , I

n c. , 8 E
. A. D. 1 6 5 , 1 9 1 , 2 2 4 -2 5 (E A B 2 0 0 0 ); I n re As h G r ov e C e m e ntC o. , 7 E
. A. D. 3 8 7 , 4 1 7 -1 8 (E A B 1 9 9 7 ). T h e p e rm it iss u e r m u st a r t i c u l a t e w ith r e a s on abl e c l a r i tythe r e a s o ns s uppo r t i ng i t s c o nc l us i o n a nd the s i g n i f i c a n c e o f th e c ru c ia l fa c ts it re lie d u p o n w h e n re a c h in g its co n clu sion
. E

. g . , I

n r e Sh el lO

f f sho re , I n c. , 1 3 E
. A. D. 3 5 7 , 3 8 6 ( E AB 2 0 0 7 ). A s a w h ol e, th e r ecor d m u stdem on str at e th atth e per m i ti ss u er “ d u ly c o n sid e re d th e iss u e s ra ise d in th e c o m m e n ts” a n d u l tim a te ly a do pt e d a n a ppr o a c h tha t“i s r a t i o na l i n l i gh t of a l l i nf o r m a t i o n i n the r ecor d
. ” In re G o v’t o f D .C

. Mu n . S ep a ra t e S t o rm S e w e r S ys. , 1 0 E
. A
. D
. 3 2 3 , 3 4 2 (E A B 2 0 0 2 ); ac c or d I n r e C i t y of Mos c ow , 1 0 E .A .D
. 1 3 5 , 1 4 2 ( E A B 2 0 0 1 ); I n r e NE Hub Par tne rs , LP , 7 E
. A. D.SI ERR A PAC I FI C I N D U STRI ES 18

For

e x am ple , a pe tition f

or review ordinarily

m ust be f ile d with theBoa

rd 8 w ith i n3 0 d ay s o f

s e rv i c eo f

n o t i c eo f

th ef i n alp e rmi td e c i s i o nb y

th ep e rmitt ing authori ty . 40 C .F .R
. § 12 4. 19 ( a) ( 3)
. The 30
- da y peri od wi thin w

hi c h a per s onm ay request review

begins with the service of not ice unless the permittin g a uth ority specif

ies a la te r da te
. Id
. I n c a s e s w

h e r e th e f i l i n g d at e f

al l s o n a w e e ke n d o r l e g al h o liday , a petiti oner ha s untilthene xt workingday to f ilethepe tition. Id . § 124. 20(c ). 5 6 1 , 5 6 7
- 6 8 (E A B 1 9 9 8 ), re vi ew d en iedsu b no m . P enn F u el G a s, I n c. v . EPA , 1 8 5 F .3 d 8 6 2 (3 rd C ir
. 1 9 9 9 ). O n m atters th at are fu n d a m e n ta lly te c h n ic a l o r sc ie n tific in n a tu re , th e B o a r d t yp ic a lly w ill d ef ert o a p erm i ti ss u er ’s t echn i cal exp ert i se and exp er i ence, as l on g as th e p e rm it iss u e r a d e q u a te ly ex p la in s its ra tio n a le a n d su p p o rts its rea so n in g in th e a d m in istrativ e r e c o r d
. Se e I n r e D om i ni on Ener

gy Br ay t on Poi nt

, LLC , 1 2 E .A .D . 4 9 0 , 5 1 0 (E A B 2 0 0 6 ); s e e al s o, e . g. , In re R u sse ll

C it y E n er g y C tr., PSD A pp eal N o s . 10- 01 t o 10- 05, s l i p o p. at 8 8 (E A B N o v . 1 8 , 2 0 1 0 ) , 1 5 E .A .D . _

_ _ , p e t i t i o n d e n i e ds u b n o m. Ch a bot

- Las Po s i ta s Cmt y . Co l l

. Dis t
. v . EPA , N o . 1 0
- 7 3 8 7 0 (9 th C ir. M a y 4 , 2 0 1 2 ); I

n re P eabody W

. C oalC o. , 12 E. A
. D
. 22, 40- 41, 46, 5 1 (E A B 2 0 0 5 ); N

E Hu b , 7 E. A
. D
. a t570- 71. I n r e v i e wi ng a n e xe r c i s e o f di s c r e t i on bythe pe r m i t t i ng aut h or i ty , th e B oar d app l i es an a b u se of d i sc r et i on st and ar d
. S ee In re G uam W at e r w ork s Aut h. , N P D E S A ppe a l N o s . 9- 15 & 9- 16, s l i p o p. a t9 n. 7 ( EA B 2011) , 15 E
. A
. D
. ___. The B o a r d wi l l upho l d a p erm i t t i n g aut h or i ty ’s r eas on ab le exer ci se of dis cr et i on i f

th atdeci si on is co g en tl yex p la in e d an d su p p o rted in th e re co rd
. S ee A sh G rove , 7 E
. A
. D
. at 3 9 7 ( “[A ] ct s of d i sc r et i on m u st b e adeq u at ely ex p l ai n ed a n d ju stif

ie d .” ); see a l

so M o to r V

eh i cl es M

f rs. A ss’ n v. S ta t e F a rm Mu t
. Au t o . I

n s . C o. , 4 6 3 U .S . 2 9 , 4 8 (1 9 8 3 ) (“ W e h a v e fre q u e n tly re ite ra te d th a t an a g e n c y m u st c o g e n tly e x p la in w h y ith a s e x e rc ise d its d iscretion in a g ive n m an n er * * *.”). B. P e titio n e r’s B u rd e n o n Ap p e a l, In c lu d in g T

h re sh o ldR e q u ire m e n ts I n det erm i n i n g w h eth ert o r evi ew a p et i ti o n f i l ed u n d er 4 0 C
. F
. R
. § 1 2 4
. 1 9 ( a) , th e B oard fi r stconsi d er s w h eth erth e pet i t i on er h as m etth resho l d p roced u ral r eq u i rem en t s such as t i m el i n ess, 8SI ERR A PAC I FI C I N D U STRI ES 19

In g eneral, a petiti oner

m ust e stabl is h s ta

ndingto appe alby

de monst rating 9 prior inv olv ement

in thepublic rev iew

proc es s, e ither by

f ilingw ritten c om

ment s on the dra f t permit or by

parti cipatingin a publiche aring . 40 C.F .R. § 124.19( a) (2)
. For e x am ple , a pe titioner m

ust demonst ratethat a ny is sue s and argument s it 10 rais eson a

ppeal hav e be en pre serv ed f or B oard rev iew

(i .e ., were rais ed duringthepubli c com ment period or publ iche aringon the dra f t permit) , unl es s the i ssu es or a rgument s w e r en o tre a s o n a

b ly a s c e rt ai n a

b l eatth eti me . 4 0 C
. F
. R
. § § 1 2 4
. 1 3 , . 1 9 (a)( 4)( ii) ; see, e.g., In re City of Att lebo ro , NP D E S Ap p ea lNo
. 0 8
- 0 8 , s l i p o p . at1 0 , 5 8
- 5 9 (E AB Sept. 15, 2009), 14 E.A .D . __; In re Ci ty of M osc ow , 1 0 E
. A. D
. 1 3 5 , 1 4 1 , 1 4 9
- 5 0 (E AB 2001). For

e x am ple , a pe titioner m

ust not only ge n era lly

obje ct to thepermit, but 11 al so m ust “ cl ea rly s et f orth, with le g aland factu al s upport, pe titioner’ s contentionsf or w hy thepermit dec is ion should be rev iew ed. ” 40 C.F .R. § 124.19(a)( 4). Thus, a pe tition must be s pe c i f

i c and c ont ai n, ata

mi nim um , two e s s e nti alc om

po nent s : ( 1) c lear identifica tionof the cond itio ns i nthe permit that are at issue, and (2 ) an argum ent that thec onditi ons w ar

ra nt review . 40 C.F .R. § 124.19( a) (4) (i) ; In re Puna Geot her mal Ventu re , 9 E .A .D . 243, 274 (EAB 2000) (ci ti n g In re Be ckman Prod. Servs. , 5 E.A .D . 10, 18 (EAB 1994) ).

Fe deralc ircuit cour

tsof a ppeal ha v e uphel d this Bo ard re quirement that a 12 petiti oner m ust s ubstantiv ely

c onf ront thepermit is su er’sre spons e to t he petiti oner ’s p revious obj ec tions
. Ci ty of Pitts fie ld v. EP

A , 614 F .3d 7, 11-13 ( 1st Cir. 2010), a

f f’g In re Ci ty ofPitts fie ld, NPDES A

ppeal No. 08-19 ( EAB M ar . 4, 2009) ( Order D enying Review); M

ic h. D ep’t of

Env tl. Q ualit

y v. EP A , 318 F .3d 705, 708 (6t h Cir. 2003) (c ontinue d...) s ta n d in g , is s u e p r e s e r v a ti o n , a n d s p e c if ic it y. S ee 4 0 C. F
. R. 9 10 11 § 1 2 4 .1 9 ; I

n r e I nd e c k

- Elwood

, LLC , 1 3 E .A .D . 1 2 6 , 1 4 3 (E A B 2 0 0 6 ). A ss um i ng tha ta pe t i t i o ne rs a t i s f i e s a l l thr e s ho l d pr o c e dur al o b lig a tio n s, th e B o a rd th e n e v a lu a te s th e p e titio n to d e te rm in e if it w arra n ts rev iew
. I

n d eck , 13 E. A
. D
. a t143. A s no t e d a bo v e , i n a nya ppe a l f r o m a p er m i t unde rpa r t124, th e p et i t i on er b ears th e b u rd en of d em on strat i n g th at revi ew is w arra n ted
. S ee 4 0 C .F .R . § 1 2 4 .1 9 (a )(4 )
. T h u s t o th e e x te n t a p e titio n e r c h a lle n g e s a n iss u e th e p e rm it is su e r a d d re ss e d in its re sp o n se to c o m m e n ts, th e p e t i t i o n e r m u st p ro v id e a re c o rd c ita tio n to th e com m en t an d respo n se an d al so m u st ex p la i n w hy th e p e rm it i ss u er ’s prev iou s r es p on se t o th ose com m ent s w as cl ear l yerr on eous or o th e r wi s e wa r r a n t s r e v i e w. Id . § 1 2 4 .1 9 (a )(4 )(ii) ; see, e.g ., In re 12SI ERR A PAC I FI C I N D U STRI ES 20

(.. .c ontinue d)

12 (“[P etition er] sim

ply rep ackag[in g] its com

ments and the EP A ’s respo nse as unmediated appen d ic es to its Petition to t he Boa rd ** * doe s not s atis f

y theburden of

s howing entitl ement

to rev iew .” ), aff’

g In reWas tewater

Treat ment F ac. of Union Tw

p. , NPDES A ppeal N os. 00-26 &00-28 (EAB J an. 23, 2001) (O rder D enyingPetitionsf or Review); Le Blancv . EP

A , N o. 08- 3049, at 9 (6th Cir. Feb. 12, 2009) ( conc ludingthat t he Boa rd cor re ctly f ound pe titionersto hav e proc edural ly de f aulte d w here petiti oner s merely re stated “griev anc es ” without of f eringre as ons w

hy theRe g ion’sre spons eswere cl ea rly er roneo u s o r o therwis e w ar ra nte d rev iew), aff’

g In reCore Energy

, LL C, UIC A

pp eal No. 07-02 (EAB D ec . 19, 2007) ( Order D enyingReview). Te c k C om i nc o Al as ka, I

nc ., 1 1 E
. A
. D
. 4 5 7 , 4 9 4 -9 5 (E A B 2 0 0 4 ); In re W e s t bor ough , 1 0 E .A .D
. 2 9 7 , 3 0 5 , 3 1 1 -1 2 (E A B 2 0 0 2 ); I n r e C i t y of I r v i ng , 1 0 E .A .D . 1 1 1 , 1 2 9
- 3 0 (E A B 2 0 0 1 ), r e v i e w d e n i e d s u b n o m. Ci t y o f Ab i l e n e v . EPA , 3 2 5 F .3 d 6 5 7 ( 5 th C ir. 2 0 0 3 ). T h e B o ard c o ns i s t e nt l yha s de ni e d r e v i e w of pe t i t i o ns tha tmer e l yc i t e , a t t ach, in co rp o r a te, or reiterate c o m m en ts p rev iou slysu b m itted on th e d raft p erm it
. E. g. , In re C ity o f P ittsfie ld , NP DES A p p e a l No
. 0 8
- 1 9 ( E AB M ar. 4 , 2 0 0 9 ) (O rd er D en y in g R ev iew ), a ff’d, 6 1 4 F .3d 7 , 1 1
- 1 3 ( 1 st C ir. 2 0 1 0 ); I

n r e Knau

f Fi be rGl ass , Gm bH ( “Knau f I I ”) , 9 E. A
. D
. 1, 5 ( EA B 2000) ( “Pe t i t i ons f o rr e v i e w m a yno ts i m pl yr e pe a to bj e c t i o ns m a de dur i ng the co m m e ntpe r i o d; i ns t e a d the ymus tde m o ns tr a t e why th e p e rm ittin g a u th o rity’ s re sp o n se to th o se o bj e c tio n s w a rra n ts re v ie w .” ); I

n r e Hads on Pow e r14 , 4 E. A
. D
. 258, 294- 95 ( EA B 1992) (d en y i n g r evi ew w h er e pet i t i on er s m er el yr ei t er at ed com m ent s on dr a f tpe r m i ta nd at t ache d a c o pyo f the i rc o m m e nt s wi tho uta ddr e s s i ng p erm itissu er’ s resp o n se s to co m m en ts). W he n p et i t i o ns a r e f

i l e d bype r s o ns who a r e unr e pr e s e nt e d by le g a l co u n se l, lik e th e p e titio n s h e re , th e B o a rd e n d e a v o r s to lib e ra lly c o n str u e th e p e titio n s to fa irly id e n tify th e su b sta n c e o f th e a rg u m e n ts b ein g raised
. I

n r e Sut t e rPow e rPl ant , 8 E
. A. D. 68 0 , 68 7 ( E AB 1 9 9 9 ); se e also I

n r e E n vt l

. D ispo salSys. , I n c. , 1 2 E. A. D. 2 5 4, 292 n .2 6 (E A B 2 0 0 5 ); I

n r e Env ote c h, LP , 6 E .A .D . 2 6 0 , 2 6 8 (E A B 1 9 9 6 ). W h ile th e B o a rd “ d o e s n o t e x p e c t su c h p e titio n s to c o n ta in soph i st i cat ed l egal ar gu m ent s ort o e m p loyprec i se t echn i cal orl egal t e r m s , ” the B o a r d ne v e r the l e s s “do e s e xpe c ts uc h pe t i t i o ns t o pr o v i de su ffi cien t sp ec ifi cityto ap p ris e t h e B o ard of th e issu es b ein g raised .” S u t t er , 8 E
. A
. D
. a t 6 8 7 -8 8 ; ac c or d I n r e P. R. El e c . Pow e rAut h. ,SI ERR A PAC I FI C I N D U STRI ES 21 6 E. A
. D
. 253, 255 ( EA B 1995)
. “ The Boa r d a l s o e xpe c t s the pe t i t i o ns t o a r t i c ul a t e s o m e s uppo r t a bl e r e a son or re a s o ns a s t o whythe p erm i t t i n g aut h or i tyerr ed or w h yr evi ew i s o th erw i se w arr ant ed.” S u t t er , 8 E .A .D . a t 6 8 8 ; a cco rdI n re B eckm a n P ro d

. S ervs. , 5 E
. A. D. 1 0 , 1 9 (E A B 1 9 9 4 ). T h u s, th e b u rd e n o f d e m o n str a tin g th a t re v ie w is w a rra n te d still res ts w ith th e p e titio n e r c h a lle n g in g t h e p e r m it d ec isi o n . I

n r e Ne w Eng. Pl at i ng C o. , 9 E .A .D . 7 2 6 , 7 3 0 (E A B 2 0 0 1 ); E n cog en , 8 E. A
. D
. a t249- 50.

V I
. PENDI

NG PROCEDUR AL MOTIONS Thr e e o f

the P et i t i o ne r s , M r . C o l e m a n, M s . St r a nd, a nd M s. D ra isn e r, h a v e file d m o tio n s re q u e stin g th a t th e B o a rd a c c e p t late f i l i n gs. M r . C ol em an’s m ot i on as ks th e B oar d t o ac cepta l at e pet i t i on f o rr e v i e w . Mr
. C o l e m a n s u b m i t t e d th r e e p e t i t i o n s f o rr e v i e w . H e f i l e d hi s o r i g i na l pe t i t i o n a nd a f i r s ta m e nde d pe t i t i o n bef o r e the f i l i ng d e a dl i ne o f

M a r c h 26, 2013, a nd hi s s e c o nd a m e nde d pe t i t i o n f o ur da y s a f t e r the f i l i ng de a dl i ne , o n M a r c h 30, 2013. O n A p r i l 9, 2013, th e B oar d i ss u ed an or d eri n d i ca ti n g , a m on g oth erth i n gs, th at M r . C ol em an’s s econd am end ed p et i t i on w as l at e a n d th ati t“w as not a c c o m pa ni e d bya mot i o n, did n ot i de nt i f ythe c ha ng e s made f

r o m the pr e v i o u s two p e t i t i o n s , a n d d i d n o t p r o v i d e a n y j u s t i f i c a t i o n f o r t he B o a r d’ s a c c e pt a nc e of thi s a m e nde d pe t i t i o n a f t e rthe de a dl i ne p a s s e d
. ” O r d e rC o n c e r n in g B o a r d P r o c e d u r e s 1 -2 (A p r . 9 , 2 0 1 3 ) . In r e s po ns e t o thi s O r de r , M r . C o l e m a n f i l e d the m o t i o n no w be f o r e the B o a r d r e que s t i ng tha tthe B o a r d a c c e pthi s s e c o nd a m e nde d pe t i t i o n. M r . C o l e m a n s t at es tha tthe “ma i n purpo s e o f Ed W
. C o l e m a n’ s ‘ 2nd A m end ed P et i t i on ’ i s t o pres ent a cl ean and prof es si on al docu m ent f

or E P A r evi ew ” a n d ar gu es th atac cept an ce o f th i s l at e pet i t i on w ou l d not be a n “undue bur de n” o n the B o a r d o rthe R e g i o n. T h e B oar d den i es M r. C ol em an’s m ot i on . M r . C ol em an’s se co n d am end ed p et i t i on cont ai n s a s u b st ant i ve a r gu m ent not i n cl u d ed i n h i s f i r st tw o p et i t i on s ( th at th e R egi on h ad e r r on eous ly tr ea te d S i err a Paci f

i c’s proposal as a p erm i tm od i f i cat i on ) , and M r . C ol em an ha s no tj us t i f

i e d whyt h at argum e ntc o ul d no tha v e be e n i nc l ude d i n a t i m e ly p e titio n . A lth o u g h th e B o a rd h a s p e rm itte d late filin g s in “sp eci al ci r cum st ances , ” M r . C ol em an h as n otof f er ed an ys p eci al ci r cum st ances as a r eas on f or th e l at e f

il in g . S ee In r e AES P. R. LP ,SI ERR A PAC I FI C I N D U STRI ES 22

D espitetheBoa rd’ s admoniti on to Petitionersnot to f ilea document

with the 13 Board absent “a prop er motio n seeking leav e of the bo ard to f

ile su ch do cument,” Order Conc er ningBoa rd Proc eduresat 1- 2, Mr . C oleman and Ms . St ra nd hav e continue d to f

ile document s with theBoa

rd without re ques ting per

mis si on by motion. The Boa rd ha s not consid ered these docum ents. 8 E .A .D . 3 2 4 , 3 2 8
- 2 9 (E A B 1 9 9 9 ) (l ate fili n g allow ed w h en aircra ft p r ob l em s exp er i enced b y overn i gh t d el i very se r vi ce r es u l t i n g in on ed ay d e la y); I

n r e Ka w a i h a e C o g enerat i o n P roj ect , 7 E. A
. D
. 107, 123- 2 4 (E A B 1 9 9 7 ) (la te filin g a llo w e d w h e n d e la y w a s a ttrib u t a b l e to p e rm ittin g a u th o rity as it m ista k e n ly i n str u c te d p e titio n e rs to file ap p ea ls w ith E P A H ea d q u arters H ea rin g C lerk ). The Boa r d’ s A pr i l 9, 2 013 O r de ra l s o no t e d tha tM s . St r a nd ha d s ubm i t t e d s uppl e m e nt a l do cument s a f t e rthe f

i l i ng de a dl i ne w ith o u t a m o ti o n ju sti f y in g th e late fil in g . O rd er C o n ce rn in g B o ard P r o c e dur e s a t 2. O n A pr i l 22, 2013, M s . St r a nd f i l e d a m ot i on r e q u e s ti n g th a t t h e B o a r d a c c e p t h e rla te fi li n g . O n th e s a m e d a y, M s . D r a i s ne ra l s o f

i l e d a mot i o n reque s t i ng tha tthe B o a r d a c c e pt do c ume n t s th a twe r e n o tt i me l ys u b mi t t e d
. Bo th M s . S tr a n d a nd M s. D ra isn e r a rg u e th a t th e B o a rd sh o u ld a c c e p t t h e d o c u m e n ts b e c a u se th e y w o u ld “ a s sis t th e B o a rd ” a n d c o n sid e rin g th e m w o u ld n otbe an “ u n d u e bu r d en.” T h e B oar d den i es both m ot i on s. N ei th er P e titio n e r h a s a d v a n c e d a n y ex p la n a tio n a s to w h y th e se d o c u m e n ts c o u ld n o t h a v e b e e n f i l e d in a tim e ly m a n n e r. T h a t th e d o c u m e n ts m ay b e relev an t an d n o t ti m e co n su m in g to r ev iew d o es n o t j u s tify f i l i n g th em l at e. 13SI ERR A PAC I FI C I N D U STRI ES 23 V I I
. A N A L Y S IS A. The Regi on Abus e dIt s D is c r e t i on i n D e t e r m i ni ng ThatThe r e W as No t a S ig n ific a n tD e g re e o f P u b lic In te re st in th e S ie rr a P a c ific D r af tPerm i tand Thu s C l ear l y Er r e d i n Fai l i ng t o Hold a Mandat or

y Publ i c He ar i ng U

nde r40 C. F. R. § 124. 12( a) ( 1) 1. T h e S p eci f i c I ss u e P re se n t ed Un d e r4 0 C

. F

. R. § 1 2 4 .1 2 (a

)(1) U n d er 40 C .F .R
. § 1 2 4 .12 (a) , th e R egion i s r e qui r e d t o ho l d a p u b l i c h ear i n g on d r af t P S D , N P D E S , and U I C p erm i t s i f th e R egi on fin d s th e re is a “ sig n ific a n t d e g re e o f p u b lic in te re st, ” a n d , in its d i sc r et i o n , al so m ay de c i de t o ho l d a publ i c he a r i ng “i f s uc h a he a r i ng m igh t clarify o n e or m o re i ssu es in v o lve d in th e p erm it d e c is io n .” Thus , the r e g ul a t i o ns pr o v i de bo th a manda t o r ydutyto ho l d a he a r i ng i n c e r t a i n c i r c um s t a nc e s , a nd a di s c r e t i o na r yo pt i o n t o ho l d a he a r i ng sh o u ld th e p erm itti n g au th o rityd ee m on e a p p ro p riate. P etit ion ers p r i m ar i l yhave f

ocused thei rchal l enge t o th e R egi on ’s hear i n g den i al on th e m an d ato ry req u irem en t t o h o ld a h ea rin g u n d er se ct i on 12 4
. 1 2 ( a) ( 1 ) i f th e R egi on f

i n d s th er e i s a “si gn i f

i cantdegre e of pu b l i c i n t er es t
. ” M r . C ol em an, h ow ever , al so app ear s t o ar gu e t h at th e R e g io n e rre d b y n o t ex e rc isin g it s d isc re tio n to g ra n t a p u b lic he a r i n g u n d e rs e c t i o n 1 2 4
. 1 2 ( a ) ( 2 )
. Ac c o r d i n g l y , th e Bo a r d f i r s ttu r ns t o the que s t i o n o f whethe r the R e g i o n c l e a r l y e r r e d i n det e r m i ni ng th e re w a s n o t a “ s i g n ific a n t d e g re e o f p u b lic in te re st” in a p u b lic h e a r in g o n th e d raft P S D p erm itfor S ierra P ac ifi c. I n P art V I I .B b el ow , th e B oar d add r es se s M r . C ol em an’s a r gu m ent c o n ce r n i n g a d iscretion ary p u b li c h ea rin g u n d er se ction 1 2 4 .1 2 (a)(2 ). 2. T h e “ S ig n i f i ca n tD eg ree o

f P u b l i c Interest ” S ta n d a rd

a. Re gul at or

y C lar i f i c at i on E P A ’s r egul at i on s d o not d efi n e th e “si gn i f i cantdegre e of p u b l i c i nt e r e s t ” s t a nda r d i n 40 C. F. R
. § 124. 12( a ) ( 1) , no rdo e s the p r eam b le to th e f

i n al ru l e provi d e m u ch cl ar i f i cat i on . I n th e pre am b l e, th e A gencyr es p on d ed t o a com m ent er ’s descr i p t i on of th e s t and ar d as “ v a g u e ” b y n o tin g t h a t “ [o ]n e o f th e p u rp o se s o f h a v in g a p u b licSI ERR A PAC I FI C I N D U STRI ES 24

To take into ac count “ thepermit appl ic ant ’sint eres t ( or s omeonee ls e’ s 14 intere st) in us ingthehe aringto ex ploreiss uesfur

ther,”45 Fe d. Reg . at 33,409, EPA did, how ev er , add thedis cretiona ry a uthority to hold he aring s to “ cl arif y oneor moreis sue s. ” 40 C. F.R . § 124. 12(a)( 2). h eari n g is t o resp on d t o p u b l i c i n t erest , w h i ch i s n ot s u bjectto p reci se m eas u r em ent
. ” 45 F ed. R eg. 3 3 ,2 9 0 , 33 , 4 0 9 ( M ay19 , 19 8 0 )
. Lat er 14 re p ro m u lg a tio n s o f th is s ta n d a rd p ro v id e m o re d e fin itio n . I n 1 9 8 4 , in a m e ndm e nt s t o i t s r e g ul a t i o ns g o v e r ni ng s t a t e pr o g r a m s a dm i ni s t e r i ng s e c t i o n 404 o f

the C l ean W a t e rA c t , EP A e xpl a i ne d tha tunde rthe “s i g ni f i c a ntde g r e e o f

publ i c i nt e r e s t ” s t a nda r d, “[ i ] f the i s s ue s s o ug ht t o be r a i s e d a r e i m m a t e r i al , the [ pe r m i ti s s ue r ] mayc o nc l ude tha tthe de g r e e o f

publ i c i nt e r e s ti s no t‘ s i g ni f i c a nt
. ’ ” 49 Fe d. R eg. 39, 012, 3 9 ,0 1 5 (O c t. 2 , 1 9 8 4 ) (“ 4 0 4 P ro g ra m R e g u la tio n ” ). F iv e yea rs late r, in e x p la in in g its c h o ic e o f th e “ sig n ific a n t d e g re e o f p u b lic in te re st” s t a nd a r d i n the NPD ES Se wa g e Sl ud g e Pe r mi tRe gul a t i o ns , EPA n o te d th a t E P A “ str o n g ly en c o u ra g e s p u b lic h e a rin g s w h e n e v e r p u b lic in terest h as b ee n sh o w n .” 5 4 F ed . R eg . 1 8 ,7 1 6 , 1 8 ,7 7 6 (M ay 2 , 1 9 8 9 ). N on eth el es s, E P A m ade cl eari tdis favore d “au t om at i c tr i gger s, ” s u ch as a “ sin g le r equ es t , ” a n d pref err ed “ t o gi ve th e R egi on al A d m i n i str at orf

l exi b i l i tyt o exer ci se jud gm ent i n th i s r egar d
. ” Id
. b. I nt e r pr e tat i ons of

the “Signi

f i c antD egr e e of Pu b l i c In t e r e s t ” S t a n d a r d b y t h e EPA A d m i n istra t o r a n dth e B o a rd P rior d ec isi o n s b yth e E P A A d m in istrato r an d t h e B o ard re c o g n iz e th a t th e p e rm it iss u e r h a s a d e g re e o f d isc re tio n in d et erm i n i n g w h eth ert o hold a hear i n g un d ers ect i on 12 4
. 1 2 ( a) ( 1 ) ’s “s i g ni f i c a ntde g r e e o f

publ i c i nt e r es t ” st andar d. Fo re xa m pl e , i n In re Nor an da Al umi na , LLC , the A dm i ni s tr a t o r r e c e nt l yo pi ne d tha t“the E P A has r ecogni zed som e di sc r et i on i n th e p erm i t t i n g aut h or i tyt o not h o ld a p u b l i c h e a rin g fo r e v e ry P S D p e rm it p ro c e e d in g .” T itle V P e t. N o . V I
- 2011- 04, a t24 ( A dm ’ rD e c . 14, 2012) ( O r de rD e ny i ng Pe t i t i on f or O bje ct i o n t o Pe r m i t )
. O the rc a s e s ha v e de s c r i be d the d e te r m i n a tio n a s to w h e th e r to h o ld a p u b lic h e a rin g a s “ la rg e ly d i sc r et i on ary . ” In re C i t y o f F o rt W o rth , 6 E
. A. D. 3 9 2 , 4 0 7 ( E AB 1 9 9 6 ) ( “T h e d eci si on t o h ol d a p u b li c h ea rin g u n d erSI ERR A PAC I FI C I N D U STRI ES 25 4 0 C
. F
. R
. § 12 4
. 1 2 ( a) is ‘ largel ydis cr et i on ary . ’” ( q u ot i n g In re A very L a ke P rop . O w n ers A ss o c. , 4 E .A
. D
. 2 5 1 , 2 5 2 (E A B 1 9 9 2 ))) ; see I n re Web er #4- 8, 11 E. A
. D
. 241, 246 ( EA B 2003) ( A g e nc yi s a f f o r ded
“ b ro ad d iscretion ” in d ec id in g w h eth er to h o ld a p u b li c h ea rin g ). T aki n g i n to ac cou n tth e di sc r et i on ac cor d ed p erm i ti ss u er s on th e fin d in g o f w h e th e r th e re is a “ sig n i f i c a n t d e g re e o f p u b lic in te re st” i n the dr a f

t pe r m i t , the A dm i ni s tr a t o r a nd the B o a r d g e ne r a l l y have u p h e ld d e c isio n s b y p e rm it iss u e rs to d e n y req u e sts fo r p u b lic h ea rin g s. T w o of th es e c as es co n ce rn ed a P S D p erm it , Nor anda a nd I n r e Sp o kan e R egi o n a lW a ste-t o - E n er

g y P roj ect , 3 E
. A
. D
. 68 ( A d m ’r 1990)
. I n Nor anda , a p et i t i on had been f i l ed w i th E P A r equ es ti n g th at the A dm i ni s tr a t o r o bj e c t t o a Ti t l e V pe r m i t g r a nt e d by the St a t e of Lo ui s i a na tha ti nc l ude d a modi f i c a t i o n t o a n e xi s t i ng PSD pe r m i t
. O ne o f th e re a so n s th e p e titio n e rs c la im e d th e p e rm it w a s o bj e c tio n a b le w as th atLou i si ana h ad d en ied th ei rr equ es tf ora p u b l i c hear i n g. B eca u se th i s w as a state-i ssu ed p erm i t , 40 C
. F
. R
. § 1 2 4
. 1 2 ( a) did n ot g o v ern L o u isi an a’ s d ec isi o n on th e h ea rin g req u es t; h o w ev er, L o u isia n a a p p lie d a “ s i g n ific a n t d e g re e o f p u b lic in te re st” tes t in de t e r m i ni ng whe the rt o g r a nta publ i c he a r i ng unde ri t s r e g ul a t i o ns im p le m e n tin g th e P S D r e q u i r e m e n ts. T h e A d m in istr a to r u p h e ld Lo ui s i a na ’ s de ni a l o f

two publ i c he a r i ng r e que s t s unde rthi s s t a nda r d, fo c u sin g p rim a rily o n th e in sig n ific a n c e o f th e P S D p e rm it m odi f i c a t i o n. Ti t l e V Pe t
. N o . V I
- 2001- 04, a t25- 26. Spe c i f i c a l l y , the A d m in is tr a to rc o n c lu d e d th a t it w a s n o t “ u n r e a s o n a b le ” to d e n y a h e a rin g g iv e n th a t: [T ]h e 2 0 1 1 P S D p e rm it w a s a re v isio n o f a p re v io u sly issu ed P S D p er m it a n d n o t an au th o rization for a m aj o r m od i f

i cat i on of

th e s ou r ce. F u r th erm or e, based o n the s t a c k t es t s , the maxi m um a l l o wabl e N O [ x] em i ss i on s f

r om th e f

i ve e m i ss i on s u n i t s t es t ed d e c re a se d , w h ile in c re a se s in N O [x ] e m iss io n s d u e to the Y i e l d I m pr o v e m e ntPr oj e c tw er e o nl y23. 33 tpy N O [x ]. Id
. a t26.SI ERR A PAC I FI C I N D U STRI ES 26

Thisc as e inv olv ed appl ic ation of 40 C .F.R
. § 147.2929(f

), w hic h c ontains 15 identic alla

nguag e to 40 C.F .R. § 124.12( a) (1)
. I n t h e Spok ane d e c i s i o n , th e Admi n i s tr a t o ru p h e l d a he a r i ng de ni a l e m pha s i z i ng bo th the n ar r ownes s o f the matt e ra ti s s ue a nd the f ai l u r e of th e hear i n g r equ es t or s t o add r es s th atnarr ow issu e. T h er e, th e A d m i n i str at orr evi ew ed t h e W as h i n gt on S tate D epar t m ent of E col ogy ’s ( “W S D E ”) d eni al of a p u b l i c hear i n g on W S D E ’s proposed r evi si on s t o a P S D perm i t
. T h e A d m i n i str at orprevi ou sl yhad r e m a nde d the pe r m i tt o W SD E s pe c i f i c a l l yf o ra d et er m i na t i o n o f

the

x a ppr o pr i a t e ni tr o g e n o xi de ( “N O ” ) l i m i t a t i o n f o rthe pe r m i t t ed fa c ility’s c o n tro l tec h n o lo g y. In d e n yin g a h e a rin g re q u e st o f its

x r evi si on s t o th e N O l i m i t at i on , W S D E ac k n o w led ged t h atth er e w as p u b l i c i n t er es ti n th e per m i tbu t“foun d th er e w as li t t l e e x p r es si on of i n t er es ti n th e s p eci f

i c i ss u e ra i se d by th e r em and
. ” Spokane , 3 E
. A. D. a t 6 9 . T h e A d m in istr a to r fo u n d th e se fa c ts to b e c ritic a l an d u p h e ld W S D E ’ s d e n ia l o f

a p u b lic h e a rin g b e c a u se “ th e sc o p e o f th e p e rm it r e v i s i o n wa s na r r o w” a nd the r e wa s no s i g ni f i c a ntpubl i c i nt er es t i n the su bje ct of th e re v isi o n . Id
. at 7 0
. A n oth er f act or th atap p ea red to p l ay a ro le in th e A d m in istr a to r’ s d e c isio n w a s th a t alth o u g h a p u b lic h ear i n g f

u l f i l l i n g al l th e r equ i r em ent s of 40 C
. F
. R
. § 1 2 4 .12 w as not he l d, the W SD E d i d a c tua l l ymee twi th i nt e r e s t e d pa r t i e s c o nc e r ni ng th e p erm itrev isi o n . Id . at 6 9 & n .1
. T h e B oar d al so h as u p h el d h ear i n g d eni al s i n sev era l cas es i nv o l v i ng N PD ES o rU I C pe r m i t s . I nvar i a bl y , the s e c a s e s i nv o l v e d a sin g le h e a rin g r e q u e s t a n d , in m o st c a se s, n o m o re th a n tw o p u b lic co m m en ts. In re C i t

y o f A t t l eb o ro , N PD E S A p p eal N o . 08- 08, s l i p o p. a t 9 0 -9 1 (E A B S e p t. 1 5 , 2 0 0 9 ) , 1 4 E .A .D . _

_ _ (o n e h e a rin g re q u e st,
“ li m it ed co m m en ts ”); I n r e Su no c o Pa r tne rs M k t g. & Te r m i na l

s , LP , U I C A ppe a l N o. 05- 01, a t13 ( EA B J une 1, 2006) ( o ne he a r i ng re q u e st, t w o p u b lic c o m m e n ts) ; F o rt W o rth , 6 E. A
. D
. a t407 ( o ne h e a rin g re q u e st, n o o th e r p u b lic c o m m e n ts) ; I n r e O s a g e (

Paw hus ka, O kla .) , 4 E .A .D . 3 9 5 , 3 9 9 ( o n e h e a rin g re q u e st, o n e a d v e rs e p u b lic c o m m e n t); s e e al

s o I n r e Cor e Ene r

gy, LLC , U I C A ppe a l N o . 07- 02, 15 s l i p o p. a t7 n. 7 ( D e c . 19, 2007) ( no t i ng i n di c t a t h at B oar d see s no err o r i n d en ial of p u b li c h ea rin g in U I C p erm itp ro ce ed in g w h ere th ere w as a sin g le h ea rin g req u es t an d on lyon e a d v erse co m m en t).SI ERR A PAC I FI C I N D U STRI ES 27
c. The PSD St at ut or y Publ i c Par t i c i

pat i on Requi r e m e nt

s and the “Signi

f i c antD egr e e of P u b l i c Interest ” S ta n d a rd A n a ddi t i o na l po t e nt i a l r e f e r e nc e po i n t fori nt e rpr e t i ng 40 C
. F. R
. § 124. 1 2 ( a) is t he C A A , pa r t i c ul a r l ythe po r t i o n e s t a bl i s hi ng th e P r e v e n t i o n o f

S i g n i f i c a n tDe t e r i o r a t i o n o f

Ai rQua l i typ r o g r a m, 4 2 U .S .C . § § 7 4 7 0 -7 4 7 9 . J u st a s a r e g u la tio n m u st b e c o n sis te n t w ith th e u n d erl y i n g s t atu t e t o be u p h el d , i n t erp r et at i on of th e r egul at i on m u st b e f

ai th f u l t o th e st atu t or y t ex t. S e e Un ite dS ta te s v . L a rio n o ff , 431 U
. S. 864, 873 ( 1977) ( “[ R ] e g ul a t i o ns , i n o r d er to be v a l i d, mus tbe con si st en tw ith th e st atu t e u n d er w h i ch th eyare p rom u l gated .”)
. T h u s, c o u rts h a v e e m p h a siz e d th a t “ a r e g u la tio n m u st b e in te rp re te d so a s to ha r m o ni z e wi th a nd f

ur the ran d no tt o c o nf

l i c twi th the o bj e c t i v e o f the st atu t e i ti m p l em ent s. ’” Em e r y M i ni ng C or

p . v. S ec’

y of Labor , 744 F. 2d 1411, 1414 ( 10th C i r . 1984) ( quo t i n g T ru stees of I

n d

. U n i v. v. U n i t ed S ta t es , 6 1 8 F .2 d 7 3 6 , 7 3 9 (C t. C l. 1 9 8 0 )); a cco rd C ar m i c hae lv . The Payment C tr . , I nc ., 3 3 6 F .3 d 6 3 6 , 6 4 0 (7 th C ir. 2 0 0 3 ) (“A st atu t e an d i t s i m p l e m e n t i n g regu l at i on s sho u l d b e read as a w h o le an d , w h ere p o ssib le, affo rd ed a h arm o n iou s in ter p r e tati o n .”); P o w el lv. Heckl er , 789 F. 2d 1 7 6 , 1 7 9 ( 3r d C i r . 1986) ( “[ S] t a tut e s a nd r egul at i on s shou l d be r ead and constru ed as a w h ol e a n d , w h er ever p o ssib le, giv en a h arm o n iou s, co m p reh en sive m ea n in g .”). B u t s ee E nvt l

. D e

f

. v . D uke E ner

gy C o rp . , 549 U
. S. 561, 573 ( 2007) (o b se rv in g th a t th e o b lig a tio n to c o n s tru e a re g u la tio n c o n sis te n t w ith i t s a utho r i z i ng s t a tut e do e s no tc o nf e rthe po wert o r e wr i t e the re g u la tio n ). In fa c t, th e B o a r d p r e v i o u sly h a s re lie d o n p u b lic pa r t i c i pa t i o n pr o v i s i o ns i n the C A A t o g ui de i t s a ppl i c a t i o n o f the p ro c ed u ral r eq u i rem en t s i n 4 0 C .F .R
. p art1 2 4 t o P S D p erm it p ro ce ed in g s. In re R o ckG en E n erg y C tr. , 8 E
. A. D. 5 3 6 , 5 5 7 ( E AB 1 9 9 9 ) (“ T h e fa ilu re o f

[ a p e rm it iss u e r] to c o m p ly fu lly w ith th e p u b lic p a rtic ip a tio n re q u ire m e n ts o f th e re g u la tio n s im p le m e n tin g th is s t a tut o r yr e qui r e m e nt* * * unde r m i ne s t h e st at ut o r yo bj e c t i v e a nd sh o u ld b e re ctifi ed .”). T h e PS D progr am not on l yprovi d es a b r oad i n stru ct i on re g a rd in g p u b l ic p a rtic ip a tio n in p e rm it d e c isio n s, b u t sp e c ific a lly a d d re ss e s p u b lic h e a rin g s. T h e im p o rta n c e o f a d e q u a te p u b lic pa r t i c i pa t i o n i s e m pha s i z e d i n o ne o f the f i v e e num e r a t e d purpo se s ofSI ERR A PAC I FI C I N D U STRI ES 28 th e P S D p rogram in s e c tion 1 6 0
. 4 2 U .S .C
. § 7 4 7 0
. T h atp u rp ose st at em en tr ead s: [T ]o a ss u re th a t an y d e c isio n to p e rm it in c re a se d a ir p o llu tio n in a n y are a to w h ic h th is s e c tio n a p p lie s is m ade o n l yaf

t erca r ef u l eva l u at i on of

al l consequ ences of s uc h a de c i s i o n a nd a f t e ra de qua t e pr o c e du r al op p o r tuni t i e s f

o ri nf o r m e d publ i c pa r t i c i pa t i o n i n the d ecis i on m akin g p rocess. 42 U
. S. C
. § 7470( 5)
. A s t o publ i c he a r i ng s on p erm i t s , s e c t i o n 165 b ars con stru ct i on on m ajor em i t t i n g faci l i t i es u n l ess: (1 ) a p erm i th as b een i ssu ed f or suc h p rop osed fa c ility * * * ; [ an d ] ( 2 ) th e propose d perm i thas been subje ct t o a r e v i e w i n a c c o r da nc e wi th thi s s e c t i o n * * * a nd a p u b l i c hear i n g has been h el d w i th opp or tu n i tyf or i nt e r e s t e d pe r s o ns i nc l udi n g r e pr e s e nt a t i v e s o f the A d m i n i str at ort o app ea r an d s u b m i tw r i t t en or or al p r es ent at i on s on th e ai r q u al i ty i m p act of suc h so u r ce, al t ern at i ves t h eret o, con trol t ech n ology r eq u i rem en t s, an d other ap p rop ri at e con si d erat i on s. Id
. § 74 75 ( a )
. T he p ub l i c he a r i ng i s we l l

- i nt e g r a t e d i nt o the PSD p e rm it p ro c e ss w ith re q u ire m e n ts f o r t h e c o lle c tio n o f m o n ito rin g d a ta b e in g coo rd i n at ed w i th th e t i m i n g of th e p u b l i c h eari n g on th e p erm i t. S ee id

. § 7 4 7 5 (e )(2 ) (re q u irin g re s u lts o f a ir q u a lity m o n ito rin g d a ta a n d a n a l ys is to b e “ a v a ila b le a t th e tim e o f th e p u b lic h e a rin g ” ); id
. § 7 4 7 5 (e)(3 )(C ) (sam e). B eca u se th e R egi on did n ota d d ress th e r el evance of s ect i on s 1 60 a nd 165 t o the i nt e rpr e t a t i o n o f 40 C. F. R
. § 124. 12( a ) ( 1) i n i t s R es p on se t o th e Pet i t i on s, th e B o ard req u es t ed sup p l em ent al b rie fin g o n th e iss u e . I n re sp o n se , t h e R e g io n , in c o n j u n c tio n w ith EP A ’ s O f

f i c e o f G e ne r a l C o uns e l , O f

f i c e o f A i ra nd R a di a t i o n, a nd O ffic e o f E n v iro n m e n ta l J u stic e , a rg u e s th a t t h e se p ro v isio n s s h o u ld n o t b e re lie d u p o n “ to e sta b lish a re a d in g o f se c tio n 1 2 4 .1 2 th a t is u n i q u e t o P S D perm i t s. ” R eg. 9 S u p p l
. B r . at17
. T h e R egi on exp l ai n s th atE P A , i n prom u l gat i n g 40 C
. F
. R . § 1 2 4
. 1 2 , hadSI ERR A PAC I FI C I N D U STRI ES 29 i n t erp r et ed sec t i on s 1 6 0 and 16 5 as r equ i r i n g no m or e th an “ an o p p o rtu n ityfor a h ea rin g ,” an d E P A h ad d eterm in ed th at th e statu tory re q u ire m e n ts o f th e P S D p ro v isio n s d id n o t re q u ire a P S D -sp e c ific ap p roac h t o th e “si gn i f i cantdegre e of

pu b l i c i n t er es t ” s t and ar d f or in s tan ce s in w h ich se ction 1 2 4 .1 2 (a) w as ap p li ed to P S D p erm it s. Id
. a t18
. Ac c o r di ng t o the Re g i o n, “ [ t ] he r e i s no i ndi c a t i on tha tEPA in te n d e d to a p p ly d iffe r e n t i n te rp re ta tio n s o f th e sa m e lan g u a g e in s e c t i o n 124. 12( a ) ( 1) unde rdi f f e r e nts t a tut o r yc o nt e xt s a nd di f f e r e nt p erm it ti n g p r ogr am s. ” Id
. at18
- 1 9
. F u r th er , th e R egi on ar gu es th at ap p ea l o f

a p erm i tdeci si on i s n otth e a p p r op r i at e ve n u e f or rec o n sid era ti o n of a p rior ru lem ak in g . Id
. a t17- 18. Si e r r a Pa c i f

i c ’ s s uppl e m e nt a l r e s po ns e l a r g e l ytr a c k s the arg u m en ts m ad e in th e R eg ion ’ s b rief. S ierra P a c if ic R ep lyto R eg . 9 S u p p l
. B r . at1- 4
. I n add i t i on , S i err a Pac ifi c e m p h as i zes th at re c o n sid e rin g se c tio n 1 2 4 .1 2 (a )’ s v a lid ity is in a p p ro p ria te b e c a u se it w o u l d d e la y a p roj e c t th a t h a s p o sitiv e e n v iro n m e n ta l an d e c o n o m ic b en efits. Id
. a t5- 6. M s . D r a i s ne r , i n he r res p o ns e , di s put e s the R e g io n ’ s a n d S i e r r a P a c ific ’ s c la im s th a t it is n o t ap p ro p ria te to e v a lu a te w h e t h e r th e “ sig n ific a n t d e g re e o f p u b lic in te re st” sta n d a rd is c o n sis te n t w ith th e C A A . D r a isn e r R e p ly t o S ie rra P a c ific R e p ly t o R eg. 9 S u p p l
. B r . at1. I n her r es p on se t o th e R egi on ’s S u p p l em en t al B rief, M s. D raisn er a sk s: “ I f p e r m itp ro ce ed in g s b efo re th e B o ard are n o t the p l ace f

ora chal l enge t o an u n l aw f u l l yprom u l gat ed re gu l at ory s t a nda r d, the n whi c h e nv i r o nm e nt a l c o ur twoul d b e t h e c o r r e c to ne ?” Id
. A s t o Si e r r a Pa c i f i c ’ s c o nc e r n wi th de l a y s i n the PSD pe r m i t t i ng pr o c e s s f

o ri t s pr o po s e d c o g e ne r a t i on b oi l e r , M s . D r a i s ne ra s s e r t s the f aul t f o rtha tde l a yl i e s wi th the R e g i o n a nd do e s no tj us t i f yde ny i ng th e p u b li c’ s righ t t o a p u b lic h ea rin g . Id
. at2. F i n al l y , M s. D r ai sner a l s o a r g u e s th a t th e h is to r y o f S h a s ta C o u n ty’ s p r e p a r a ti o n o f its E IR sh o w s th ere w as a s ig n ifi ca n t d eg ree of p u b li c in terest. Id
. M s . St r a nd u se s h e r su p p le m e n ta l re sp o n se to re ite ra te h e r c la im s re g a rd i n g S h a sta C o untya s a n e nv i r o nm e nt a l j us t i c e c o m m uni tya nd t o d i sput e the a d e q u a c y of

th e n o tic e th e R e g i o n p ro v id e d o n th e d ra ft p e rm it. St r a nd R e s p. t o R e g . 9 Suppl
. B r . a t1- 2. T h e B o a r d g e ne r a l l ywi l l no te nt e r t a i n a c ha l l e ng e t o the v alid ityo f

a re g u lati o n in a p erm itap p ea l. I n r e C i t y of I r v i ng , 1 0 E .A .D . 1 1 1 , 1 2 3 -2 5 (E A B 2 0 0 1 ), r e v i e w de ni e d s ub nom

. C i t y ofSI ERR A PAC I FI C I N D U STRI ES 30 Ab i l e n e v . EPA , 3 2 5 F .2 3 6 5 7 (5 th C ir. 2 0 0 3 ); I n r e Tondu Ener

gy C o. , 9 E
. A
. D
. 71 0 , 71 5
- 1 6 ( E A B 20 0 1 )
. I n fa ct , th e “p r es u m p t i on of n o n re v ie w a b ility in t h e a d m in istr a tiv e c o n te x t is e sp e c ia lly a p p ro p ria te w h en C o n g ress * * * h as set p rec ise li m its o n t h e a v ailab il ityof a jud i ci al f

oru m f orchal l engi n g part i cul arki n d s of r egu la t i on s. ” In re W oodk i ln, I

nc . , 7 E
. A
. D
. 25 4 , 26 9 ( E A B 19 9 7 ) ( ci t i n g In re E c h e v a rr ia , 5 E
. A
. D
. 62 6 , 63 4
- 3 5 (E A B 1 9 9 4 ) )
. I n th i s i n st ance, se c tio n 3 0 7 (b ) o f th e C A A e x p re ss ly l im ite d c h a l l e n g e s to th is reg u la ti o n t o w ith in six tyd ays of p ro m u lga ti o n , 4 2 U .S .C . § 7 6 0 7 (b ), w h ic h w a s d e c a d e s a g o . A s th e B o a rd h a s m a d e c le a r, “ [o ]n c e [a ] ru le is n o lon g er su bje ct to co u rt c h allen g e b yrea so n of th e statu tory p r ecl u si ve r evi ew provi si on , th e A gencyi s en ti tl ed t o cl ose th e book on th e ru l e i n sof

aras i t s val i d i tyi s concern ed.” E c h e v a rr ia , 5 E. A. D. at63 5
. T h e B oar d onlyw i l l ent ert ai n a chal l enge t o a r egul at i on su bj e c t to a p re c lu siv e ju d ic ia l re v ie w p ro v isio n in “ e x c e p tio n a l” c irc u m sta n c e s w h e re a n “ e x tre m e ly co m p e llin g a rg u m e n t” is m a d e in su p p o rt o f rev iew
. I

n re US G e n Ne w Eng. , I nc . Br ay t on Poi ntStat i on , 11 E. A
. D
. 525, 557 ( EA B 2004)
. The o nl yc i r c um s t a nc e i de nt i f i e d by th e B oar d t o dat e as p o ssi b l ym er i t i n g th e e x tr aor d i n arys t ep of ent ert ai n i n g a chal l enge t o a r egul at i on prec l u d ed fr om jud i ci al r evi ew i s i f th e r egul at i on “h as been ef f ect i vel yi n val i d at ed b y a c o u r tbu thas y ett o be f

or m al l yr epeal ed b yth e A gency . ” Id
. A s d is cuss ed i n P artV I I
. A
. 2
. g bel ow , th e B oar d has concl u d ed t h atth e R egi on cl ear l yerr ed u n d erth e p l ai n l angu age of 4 0 C
. F. R. § 1 2 4
. 1 2 ( a ) ( 1 ) – th e r e g u l a t i o n i m p l e m e n t i n g C AA se c tio n s 1 6 0 (5 ) a n d 1 6 5 (a )(2 ) – in d e n yin g th e re q u e ste d p u b lic h e a rin g . B e c a u se th e B o a rd i s o r d e rin g th e R e g io n to h o ld a p u b lic h ea rin g co n sisten t w ith th e re g u lati o n , th ere is n o rea so n for th e B o ard t o a ddr e s s M s . D r a i s ne r ’ s r e que s ttha tthe B o a r d e xa m i ne whe the rthe r e g ul a t i o n i t s e l f

i s c o ns i s t e ntwi th the C A A , pa r t i c ul a r l yg i ven the p r e c lu s iv e ju d icial revie w p ro v isi o n in 4 2 U .S .C . § 7 6 0 7 (b ). F u rth er, gi ven t h atno p artyadvocat es th atth e C A A provi si on s sup p or teve n g rea ter d iscretion for th e p erm itissu er in d en y in g a h ea rin g , th e B o ard ha s de t e r mi ned i tne e d n o tr e s o l v e i n thi s c a s e whe the rthe PSD s t a tut o r ypubl i c pa r t i c i pa t i o n pr o v i s i o ns pr o v i de a g l o s s o n the i nt e rpr e t a t i o n o f the “s i g ni f i c a nt de g r e e o f publ i c i nt e r e s t ” t e sti n the con t ex tof P S D p erm i tp roceed i n gs.SI ERR A PAC I FI C I N D U STRI ES 31

Mr
. Col eman al so cite s Ex ecutiv e Order 13,563, 76 Fe d. Re g . 3821 (J an. 21, 16 20 11 ), w hich addresses, amon g oth er thin gs, publ ic participatio n inrulemaking. Beca use thisc as e inv olv es a p ermit proc ee dingand not a rulemaking , that Ex ecutiv e Order

is inap po site. d. Envi r onm e ntalJ us t i c e and the “Signi f i c ant D eg ree o f P u b l i c Interest ” S ta n d a rd T h r ee of th e Pet i t i on er s ci t e th e Pres i d ent’s E x ecut i ve O r d er on E n vi r on m ental J u st i ce and E P A poli ci es on t h i s subje ctas s uppo r t i ng the i rr e que s tf o ra publ i c he a r i ng . A l tho ug h M s . St r a nd 16 and M s. D r ai snerd o n o t ex p l ai n w h atr ol e e n vi r on m ent al just i ce p re c e p ts s h o u l d h a v e u n d e r th e re g u la to ry re q u ire m e n ts p e rta in in g to h eari n g req u est s on p erm i t s, M r. C olem an ap p ears t o a rg u e th atth ese o r de r s a nd g ui de l i ne s l o wer the s t a nda r d f o r g r a nt i ng a publ i c hear i ng u n d er 4 0 C .F .R . § 1 2 4 .1 2 (a)(1 ). C o lem an P et. at 3 . T h e B o ard d i sagrees. Execu t i v e O r de r12, 898, e nt i t l e d “ F ed era lA ct i o n s to A d d ress E nv i r onm e ntalJ

us t i c e i n M i nor i t

y and Low

- I

nc om e Popul at i ons , ” i s a d i r ect i ve t o ea ch fe d er al a gencyt o “m ake achi evi n g envi r on m ent al just i ce p art o f i t s m i ss i on by i d ent i f y i n g and add r es si n g, as app r op r i at e, dis p r op or t i on at el yhigh and a d v ers e hu m an h eal th or envi r on m ent al effec ts of i t s p r ogr am s, poli ci es , and ac t i vi t i es on m i n or i t y p op ul a t i o ns a nd l o w- i nc o m e po pul a t i o ns . ” E x ec. Or d e r1 2 , 8 9 8 § 1
- 1 0 1 , 59 Fe d
. Re g . 7 6 2 9 ( Fe b
. 1 6 , 1 9 9 4 )
. To im p le m e n t th e E x e c u tiv e O r d e r, E P A h a s is su e d p o lic y sta te m e n ts s uc h a s “Pl a n E J 2 0 14, ” U
. S. EP A , Pl a n EJ 2014 ( Se pt
. 2011) ( avai l abl e a t htt p : / / w w w . epa. gov/ envi r o n m ent a l just i ce/ r e s o ur c e s / po l i c y / pl a n- ej

- 20 14 / pl a n- e j

- 20 11
- 09
. pd f ) , a nd “ EPA A ct iviti es t o P r om ot e E n vi r on m ent al Ju st i ce i n th e Perm i tA p p l i cat i on P ro ce ss,” 7 8 F ed . R eg . 2 7 ,2 2 0 (M ay 9 , 2 0 1 3 ). N ei th er th e E x ecu t i ve O rd e r n or E P A p oli cyst at em en t s, ho wev e r , a m e nd EP A ’ s s t a tut o r yo rr e g ul a t or y r e qui r e m e nt s a nd ob l i gat i on s. T h e E x ecut i ve O rd erem p h as i zes th atal l of i t s d i r ect i ves t o ag en ci es ar e t o b e i m p l em en t ed “ [t ]o th e great estex t en tp ra c tic a b le a n d p e r mi t t e d b yl a w. ” Ex e c . Or d e r1 2 , 8 9 8 § 1
- 1 0 1
. F u r th e r , t heSI ERR A PAC I FI C I N D U STRI ES 32

The Boa

rd addre ss esthea

pplic abi li ty o f

Ex ecutiv e Order

12,898 to the 17 Re g ion’sde termination of w hen to hold a publiche aringunder 40 C.F .R. § 124.12( a) (1) an d( a) ( 2 ) i nP art s V I I
. A. 2
. gan dV I I
. B b e l o w, re s p e c t i v e l y. O r d e r c o n c lu d e s b y sta tin g th a t “ [t]h is o rd e r is in te n d e d o n ly t o i m p r ove th e i n t ern al m anagem ent of th e e x ecut i ve bra n ch an d i s n ot in te n d e d to , n o rd o e s i t c r e a te a n y ri g h t, b e n e f it , o rtru s t r e s p o n s ib il it y, su b sta n tiv e o r p r o c e d u ra l, e n fo rc e a b le a t law o r e q u ity b y a p a rty agai n stth e U n i t ed S t at es , i t s agenci es , i t s o ffi ce rs, orany pers on . ” Id
. § 6- 6 0 9
. E P A al so r ece n t l yexp l ai n ed t h ati t s envi r on m ent al just i ce p o l i c i e s a r e d i s c r e t i o n a r ya c t i o n s th a td o n o ta me n d s u b s t a n t i v e l a w: E P A [p o l i ci es ] ar e notan i n t erp r et at i on of envi r on m ent al s t atu t es , nor d o th eyadd t o orchan ge i nt e rpr e t a t i o ns o f

s t a tut o r yo bl i g a t i o ns r e g a r di ng p erm i t t i n g cont ai n ed i n exi st i n g r egul at i on s. T h ey c r e a t e no l e g a l o bl i g a t i o ns a nd i n no wa yc ha ng e the l e g a l l a nds c a pe o f

the EP A pe r m i t t i ng pr o c e s s . To the c o n tra ry, th e o n l y le g a l re q u ire m e n ts a p p lic a b le to EP A r e g i on al o f

f i c e s a nd pe r m i ta ppl i c a nt s thr o ug ho ut t h e pe r m i t t i ng pr o c e s s a r e tho s e c o nt a i ne d i n the EP A ’ s e nv i r o nm e nt a l s t a t ut e s , i m p l em ent i ng re g u la tio n s, th e A d m i n i stra tiv e P ro c e d u re A c t, app l i ca b le a n ti

- d i sc r i m i n at i on l aw s and ot h er ap p l i cab l e st atu t es an d r egu l at i on s. 7 8 F e d . R e g . a t 2 7 ,2 2 1 . F u rth e r, E P A h a s n o te d th a t its “ a b ility to p e r f o r m o u tr e a c h [ t o p r o mo t e e n v i r o n me n t a l j u s t i c e ] i s c o n s tr a i n e d by i t s r e s o ur c es . ” Id . A c c o rd in g ly, th e B o a rd d o e s n o t ag re e w ith M r . Co l e ma n’ s as s e r t i o n tha tthe Exe c ut i v e Or de ra nd EPA e n v iro n m e n ta l ju stic e p o lic ie s a m e n d t h e sta n d a rd fo r g ra n tin g a p u b lic h ea rin g u n d er 4 0 C .F .R . § 1 2 4 .1 2 (a)(1 ). 17SI ERR A PAC I FI C I N D U STRI ES 33
e. The Reg i o n ’s Co n t e n t i o n s a s t o th e Me a n i n g of th e “ S ig n ific a n t D eg re e o f P u b lic In te re st” S ta n d a rd T h e R e g io n c o n te n d s th a t th e “ sig n ific a n t d e g re e o f p u b lic in te re st” sta n d a rd re q u ire s a “ q u a lita tiv e ju d g m e n t” tak in g in to c o ns i de r a t i o n “mul t i pl e f a c t o r s , ” i nc l udi ng the num b er of he a r i ng r e que s t s , the numbero f c o m m e nt s , medi a r e po r t s o n the pr oj e ct , a nd o th er in fo rm ation th at in d ic a te s th e lev el of p u b li c in terest. R eg . 9 Suppl
. B r . a t19- 20. The s e o the rf a c t o r s, the R e g i o n s t a t e s , i nc l ude “c o ns i d e r a t i o n s o f e n v i r o n me n t a l j u s t i c e , d e mo g r a phi c a nd s o c i o e c o no m i c inf

o r m a t i o n, a s we l l a s a ddi t i o na l f a c t o r s , i nc l udi ng tho s e r a i s e d bys t a k e ho l de r s , tha ti ndi c a t e whe the rthe r e i s s i g ni f i ca nt i n t er es t in a P S D perm i t t i n g deci si on w i th i n pote n t i al l yaf f ect ed com m u n i t i es . ” Id
. at20
. M or e s p eci f i cal l y , th e R egi on i n d i cat es th at i t ha s c o ns i de r e d, i n a ppr o pr i a t e i ns t a nc e s , “publ i c pa r t i c i pa t i on and e n g a g e m e n t in th e a re a re g a rd i n g a ir/e n v iro n m e n ta l iss u e s, in te re st in l ocal pu b l i c m eet i n g and / orpu b l i cat i on s regar d i n g t o th e propose d p roject , socioecon om i c st atu s, lin gu i st i c i sol at i on , ed u cati on l evels, m i n o rit y p op u l at i on , and oth erf act or s as a p art i cul arca se m ay w arr ant
. ” Id
. at12
- 1 3
. T h e R eg ion em p h as i zes th at“[n] o one f act or i s d i sp osi t i ve, an d th ere is n o e x cl u si ve li stof f actor s th atcan or m u st b e c on si d er ed.” Id
. at20
. I n part i cul ar , th e R egi on m akes cl earth at t he de c i s i o n “s ho ul d no tbe ba s e d s i m pl yo n the numbero f r e que s t s f

or h ear i n g r ece i ved or any oth erm echan i cal cr i t er i a. ” Id
.

f. Re l e v antC ons i de r at i ons T h e B oar d agr ees w i th th e R egi on th atth e “si gn i f i cantdeg r ee o f p u b lic in te re st” sta n d a r d “ s u g g e sts th a t m o re th a n a n y p u b lic i nt e r e s ta ta l l i s ne e de d t o tr i g g e ra m andat o r yr e qui r e m e ntt o ho l d a p er m i t h e a r i ng o n a PSD pe r m i ta ppl i c a t i o n, ” a nd tha tthe r e i s “no
‘ b r i gh t li n e ’ t e s t ” f

o rde f i ni ng ” thi s s t a nda r d. Reg
. 9 Suppl
. B r . a t19. T h e B o a rd fu rth e r a g r e e s w i th th e R e g io n th a t m u ltip le fa c to rs sh o u ld b e c o n sid e re d in d e te rm i n i n g i f th e re is a sig n ific a n t d e g re e o f p u b lic i nt e r e s ti n a dr a f

tpe r m i t
. The R e g i o n, wi t h the co nc ur r e nc e o f the O f f i c e o f G e ne r a l C o uns e l , the O f f i c e o f A i ra nd R a di a t i o n, a nd the O f f i ce of E n vi r on m ent al Ju st i ce, has i d ent i f i ed i n i t s S u p p l em ent al B r i e f manya ppr o pr i at e fa c t o r s f o rc o ns i de r a t i o n. O the rc o ns i de r a t i o nsSI ERR A PAC I FI C I N D U STRI ES 34
a r e di s c us s e d i n p r i o rBo a r d a nd Admi ni s t r a t o rde c i s i o ns a nd EPA ru l em aki n gs. R el evantconsi d er at i on s i n cl u d e: Mat e r i al i t

y of I ss u es . B o th E P A ’ s in te rp re ta tiv e sta te m e n ts in th e pre am b l e t o th e 40 4 P erm i tR egul at i on and th e S p o ka ne d ec isi on i n d i cat e th ati f

requ es t or s r ai se onlyi m m at er i al i ss u es , th eyhave not d e m o n str a te d a sig n ific a n t d e g re e o f p u b l i c i n te re st in th e d ra ft p e rm it. B yi m p l i cat i on , a r equ es t orth ati d ent i f i es m ateri al i ss u es t o be r ai se d a ta publ i c he a r i ng ha s pr o v i de d a n i ndi c a t i o n tha tthe r e i s a s i g ni f i c a nt d egr ee of

i n t er es ti n th e dra f

tperm i t
. T h u s, th e m at er i al i tyor r el evance of

th e i ss u es i d ent i f

i ed forth e hear i n g i s a ke yconsi d er at i on in d eterm in in g if

a h ea rin g is req u ired
. Nu m b e r o

f He a rin g R e q u e sts a n dC o m m e n ts . A l th ou gh gaugi n g the de g r e e o f publ i c i nt e r e s ti s no ts i m pl ya number s gam e, c o n sid e ra tio n o f th e n u m b e r o f h e a r i n g r e q u e sts a n d c o m m e n ts ob vi ou sl yi s r el evan t. T h e B oar d f r equ ent l yhas up h el d th e den i al of p u b l i c h eari n g r eq u est s w h ere th ere h as b een a si n gle h e a rin g req u est and onlyone ortw o com m ent s. H ow ever , th e qu ant i t at i ve e x er ci se of c o unt i ng he a r i ng r e que s t s a nd c o m m e nt s c a nno tbe s e pa r at e d f r o m the qua l i t a t i v e e xa m i na t i on o f the s ubs t a nc e o f

the r e que s t s a nd co m m en ts. F u r th er , i ti s al so i m p or t ant t o eva l u at e th e nu m b erof r e que s t s a nd c o m m e nt s i n the c o nt e xto f the s i z e o f

the af f ect ed c o m m u n it y. D egr e e of

P u b l i c I

nt e r e s ti n Relat e d Stat e orLoc al P ro ce ed in gs. T h e R egi on i n i t s S u p p l em ent al B r i ef proposes th at “publ i c pa r t i c i pa t i o n a nd e ng a g e m e nti n th e ar e a r e g a r di ng ai r/ envi r on m ent al i ss u es [ and ] i n t er es ti n l ocal pu b l i c m eet i n g and / or p u b l i cat i on s rega r d i n g th e propose d proj ect ” a r e r el evantw h en a s s e s s i ng the de g r e e o f publ i c i nt e r e s t
. Reg
. 9 S u p p l
. B r . a t12- 13. S im ila rly, in its R e sp o n se to th e P e titio n s fo r R e v ie w , S ie rra P a c ific a rg u e s th a t th e B o a rd sh o u l d c o n sid e r th e p u b lic in te re st in its p ro p o se d c o g e n e ra tio n u n it b y e x a m i n in g p u b lic p a rtic ip a tio n in pr o c e e di ng s c o nduc t e d bySha s t a C o untyunde rC a l i f o r n i a l a w on the p ro p o se d u n it . S ierra P ac ifi c R es p . at 7 . T h e B o ard ag re e s th at w h ere s t a t e a nd l o c a l pr o c e e di ng s i nv o l v e r e l a t e d i s s ue s , the ymaypr o v i de r e l e v a nti nf

o r m a t i o n c o nc e r ni ng the de g r e e o f publ i c i n t er e s ti n the d raft fed era l p erm it
.SI ERR A PAC I FI C I N D U STRI ES 35

A s a general matter, pub lic meetings a re more informal g atherings than 18 nonadj udic atory

publi c hea

ring s. Par

t 25 of T itl e 40 of

the Codeof

Fe deralRe gulations describes the way

a “public meeting” d i ffer s fr o m a “public hearing,” f

or th e purp oses o f pub li c p art ic ip at io nr e qu i r e ments inCWA, SD WA , an dRCRA admin is tr at ive proc ee ding s, as that publicm eeting s “do not re quirefor malpres entations , s che dulingof pre sentationsand a

re cord of proc ee ding s. ” 40 C .F.R . § 25. 6. Me d ia R e

p o rts . T h e R e g i o n h a s s u g g e ste d th a t m e d ia cover age of

a p r oje ctth ati s th e s u bje cto f a d raftperm i ti s an a p p ro p ria te c o n sid e ra tio n in m e a su rin g th e d e g re e o f p u b lic in t e r e st. R eg. 9 S u p p l
. B r. a t 2 0
. T h e B oar d agr ees th atth i s i s a f act orth atca n b e gi ven som e w eig h t i n exam i n i n g th e i m p or t ance ors i gn i f i cance of th e is s u e to th e a f

f e c te d c o m m u n it y. Signi f i c anc e of

the Perm i t

Act i on . I n th e Nor anda de c i s i o n, th e A d m in i s t r a t o r re lie d o n th e m in o r n a tu re o f th e p e rm it m od i fi cati on as w ei gh i n g ag ai n sta d et erm in a tio n th atth ere w as a s i g ni f i c a ntde g r e e o f

pu b l i c i n t e r e s ti n a dr a f tpe r m i t
. I n Spokane , the nar r o wnes s o f

the i s s ue i nv o l v e d i n the r e m a nde d pe r m i tpr o c e e di ng pl a y e d a s i m i l a rr o l e . Conver se l y , new pe r m i t s o rmaj o rmodi f i c a t i o ns t o e xi s t i ng pe r m i t s mayc a r r ythe o ppo s i t e i m pl i c a t i o n. S u b st i t u t e P roces s P ro vid ed
. T h e provi si on of a sub st i tu t e f

or a “ fu ll

- d ress ” p u b li c h ea rin g m ay a c t to s a ti sfyp u b li c in terest in a d raft p erm i tand th u s m ake th ati n t er es tl es s si gn ifi cantf orpu rp ose s of de c i di ng whe the r to h ol d a he a r i ng . Thi s f a c t o rwa s c i t e d bythe A dm i ni s tr a t o ri n Spokane ( th e R egi on hel d a p u b l i c “m ee ti n g” r ath er tha n a publ i c “he a r i ng ” ) an d the B o a r d i n O s age (th e R e g io n m e t in 18 p er s o n wi th the he a r i ng r e que s t o ra nd a l l o wed the r e que s t o rt o m ake o ral co m m en ts for th e re co rd ). D e m ogr aphi c I

n f or m at i on . T h e R egi on ar gu es th at e nv i r o nm e nt a l j us t i c e c o ns i de r a t i o n s , a nd de m o g r a phi c a nd soc i oeconom i c i n f

or m at i on , ar e i m p or t ant f act or s t o consi d erw h en d e t e r mi n i n g w h e th e r t o g r a n t a h e a r i n g u n d e r 4 0 C. F
. R. § 12 4
. 1 2 ( a) ( 1 )
. P et i t i on ers s i m i l ar l yar gu e th atperm i t t i n g aut h or i t i es sh o u ld c o n sid e r e n v iro n m e n ta l ju stic e w h e n d e c id in g w h e th e r to h o ld a p u b l i c h ear i n g. T h e B oar d agr ees th at , w h en a p p l i cabl e, th es e a re f a c t o r s tha tpe r m i t t i ng a utho r i t i es s ho ul d c o ns i de rwhe n de t e r m i ni ngSI ERR A PAC I FI C I N D U STRI ES 36 th e degr ee of

pu b l i c i n te r es ti n a gi ven p erm i tproce edi n g. F u r th er , as th e B oar d m akes clea ri n P artV I I
. B bel ow , envi r on m ent al just i ce consi d er at i on s al so ar e pl ai n l yr el evantt o a p erm i ti ssuer ’s deci si on as to w h eth ert o exer ci se i t s d i sc r et i on t o hold a pu b l i c hear i n g un d er 4 0 C .F .R . § 1 2 4 .1 2 (a)(2 ).

g. T h e D eg ree o

f P u b li c Interest

i n th e D ra

f tS i erra P a c ific P e rm it A s s t a t e d abo v e , the de c i s i o n w h eth ert o ho l d a publ i c he a r i ng to “ c la rify o n e o r m o re iss u e s i n v o lv e d in th e p e rm it d e c isio n ” is w ith in th e p erm it issu er’ s d iscretion , 4 0 C .F .R . § 1 2 4 .1 2 (a)(2 ); h o w ev er, th e p erm itissu er m u st h old a h ea rin g w h e n ever th ere i s a “ sig n ifi ca n t d eg ree of p u b li c in terest” in th e d raft p erm it , id
. § 1 2 4 .1 2 (a )(1 ). E v e n so , a p e rm it iss u e r h a s “ so m e d is c re tio n ” in m aki n g th e f

actu al f i n d in g o f w h eth erth e s t and ar d m and at i n g a hear i ng unde rs e c t i o n 124. 12( a ) ( 1) ha s be e n met
. Tha tdi s c r e t i o n, h o w e v e r, is n o t lim itle ss . E v e n w h e re th e B o a rd h a s g ra n te d a p e rm it i ss u erbroad d iscr et i on i n r es ol vi n g f actu al i ss u es , th e B oar d has p la c e d li m it s o n th at d iscretion
. S ee I n r e R u ss el lC i t

y E n er g y C tr., LLC , P S D A p p ea l N o s. 1 0
- 0 1 t o 1 0
- 0 5 , sl ip op . at 9 7 (N o v . 1 8 , 2 0 1 0 ), 1 5 E
. A
. D
. __ _ ( n ot i n g th atal th ou gh “t h e per m i ti ss u erhas broa d di s c r e t i o n i n de t e r m i ni ng whe thera c o ntr o l o pt i o n woul d r e de f i ne the so u r c e , * * * [s] u c h d isc re tio n * * * is n o t u n lim ite d ” ); I n r e Ha w. El e c . LightC o. , 8 E
. A
. D
. 66 , 98 ( E A B 19 9 8 ) ( “ G en eral l y , th e c h oi ce o f ap p rop ri at e d at a set s f or th e ai r q u al i tyan al y si s i s an i ssu e l argely l ef tt o th e di sc r et i on of

th e pe rm it ti n g a u thori ty . * * * H ow ever , th at d i sc r et i on i s n ot u n l i m i t ed.” ) ( ci t at i on om i t t ed). T h e B o ard has r e v i e wed the R e g i o n’ s di s c r e t i o na r yde t e r m i na t i o n r e g a r di ng the d egr ee o f

publ i c i nt e r e s ti n the dr a f tSi e r r a Pa c i f

i c pe r m i tunde rthe f act or s sugges t ed i n th e R egi o n ’ s S u p p l em ent al R es p on se , A gency rul e m a k i ng s , a nd pr i o r dec i s i o ns bythe EP A A dm i ni s tr a t o ra nd the B o a r d. Tha tr e v i e w le ads the B o a r d t o two c o nc l us i o ns : f i r s t , the R egi on di d no tf

o l l o w s uc h a mul t i f

a c t o ra ppr o a c h i n de ny i ng the h e a rin g re q u e sts in th is c a se ; an d se c o n d , th e R e g io n a b u se d its d i sc r et i on i n det erm i n i n g th atth er e w as not a si gn i f i cantdegre e of p u b lic in te re st in th e S ie rra P a c ific d ra ft p e rm it.SI ERR A PAC I FI C I N D U STRI ES 37

In thes ame se ction of

theR esp o n se to Com

ment s document , the Re g ion 19 mentione d that it e x amine d de mogra phicdata on Sha sta County . RT C at 10. H ow ev er , thisdis cus si on c ame in responseto a com ment tha t t he Re g ion was“ v iola

tingtheint ent of Ex ecutiv e Order #12,898 with re g ard to EnvironmentalJustic e by c ircum v entingthe entire P SD permittin g process,” id
. at 9, and theRe g ion’sdis cus si on of thede mogra

phic data w asdirec te d at j ustif

yingtheRe g ion’sde termination “t hat outreach materialswould no t be translated into anoth er languag e,” id . at 10.

T o thee xtent t

he Re g ion’sRe spons e sug g es tsthat a p ub lic he aringc an be 20 deni ed “[b]ec aus e Re g ion 9 coul d providea de taile d and thorough re spons e to all public com m ents, ” Re g . 9 Resp. at 10, theBoa rd m ust dis agre e. I f

that wasan a

ppropriate cons ideration, it

isdif f icult to imag inewhen thepermit is suer coul d not usesuch a f ac tor to deny a publiche aring . The Re g ion i s oblig ated to prov idea re spons e to c om

ment s by (c ontinue d...) N otw i th st and i n g th e R egi on ’s s t at em ent s i n i t s S u p p l em ent al B r i ef th atth er e i s n o “ b righ t l i n e” f ordefi n i n g th e “si gn i f

i cantdegre e o f p u b li c in terest” stan d ard , an d th at ap p li ca ti o n of th is st an d ard “s ho ul d no t be ba s e d s i m pl y o n the num be r o f r e que s t s f o rhear i ng r ece i ved,” R eg. 9 S u p p l
. B r . at19
- 2 0 , th e R egi on app ear s t o have fo llo w e d p re c ise ly th a t ap p ro a c h . I n th e R e sp o n se to C o m m e n ts d o cu m ent , th e R egi on s i m p l yci t ed t o th e hu n d r eds of pers on s n ot i f

i ed o f th e d ra ft p e rm it, re la te d th a t it h a d re c e iv e d th re e h e a rin g re q u e sts a n d f i f t e e n c o m m e n ts, a n d th e n c o n c lu d e d th a t “ [n ]o n e o f th e re q u e sts f ora p u b l i c hear i n g dem on str at ed t h at th ere w as a si gn i f i cantdegre e of p u b lic in te re st in th e p roj e c t” a s t h e j u stif ic a tio n fo r its d e c isio n n o t to h ol d a p u b l i c h ear i n g. R T C at10
. T h e R egi on f ol l ow ed a s i m i l ar 19 a ppr o a c h i n i t s R e s po ns e t o the P et i t i on s f o rR e v i e w. The r e , the R egi on note d th ati t“d i ss em i n at ed t h e pu b l i c no ti ce for ourproposed a c tio n to o v e r 8 0 0 g ro u p s a n d in d iv id u a ls u si n g U
. S
. m a il an d to a p p r o x i ma t e l y6 5 0 i n d i v i d u a l s and g r o u p s u s i n g e l e c tr o n i c ma i l ; we al so p u b l i shed noti ces i n th e local pap er , th e Rec or d Se ar c hl ight , a nd on th e R egi on 9 W eb si t e. ” R eg. 9 R es p . at8
. T h e R egi on th en c o n tra ste d th e se n u m b e rs w ith th e n u m b e r s o f h e a rin g re q u e sts ( r e que s t s f

r o m thr e e i ndi v i dua l s , o ne o f whom r e pr e s e n t ed a gr o up) a n d c o mme n t s ( twe l v e a d v e r s e c o mme n t s ) a n d c o nc l ud e d “ we re c e iv e d v e ry little in d i c a t i o n th a t th e p u b lic a t lar g e w a s in te re ste d in th i s p erm i tdeci si on . ” Id
. T h e B oar d agr ees w i th th e R egi on ’s po s i t i o n i n i t s Su p p l e m e nt a l R e s po ns e tha ta mor e nua nc e d a nd m u lt if a c to r e d a p p r o a c h is n e c e s s a r y. 20SI ERR A PAC I FI C I N D U STRI ES 38

(.. .c ontinue d)

20 re gulation, ir

re spe ctiv e of w

het her thec om

ment s are re ce iv ed orally or in w riting
. See 40 C. F.R . § 124. 17(a)( 2). The Boa r d’ s e xa m i na t i o n o f the f a c t o r s r e l e v a ntt o a s s e s s i ng th e d eg ree of p u b li c in terest in th e S ierra P ac ifi c d raft p e rm itsatisfy the B o a r d tha tthe publ i c i nt e r e s twa s s i g ni f i c a nt
. Fi r st , ea c h o f

the r equ es t s r ai se d i ss u es th atw er e m at er i al t o th e per m i tproce edi n g. M r. S i m p son su p p li ed com m en t s i n som e d et ai l i n h i s h eari n g req u est a d d re ss in g th e q u e stio n o f B A C T . R e g . 9 R e sp . a tta c h . 2 , a p p . B , a t 3 ( E- m a i l f

r o m R o b S i m p son t o R e g . 9 A i rPe r m i t s D o c k e t( O c t
. 17, 2012) )
. A l tho ug h the i s s ue s des c r i be d i n M s . La wr e nc e ’ s a nd M s. S tra n d ’ s h e a rin g re q u e sts w e re m o re b ro a d ly fra m e d , t h e y cle a rly r a i se d co nc e rns r e g a r di ng the c um ul a t i v e a i rqua l i tyi m pa c t s o f the S i e r r a P a c if

ic fa c il it y, s u g g e s te d a lt e r n a ti v e s to a c o g e n e r a ti o n fa c il it y, an d a r g u ed for c o n sid era ti o n of e n v iron m en tal ju sti ce issu es . S ee R e g . 9 Res p. a t t a c h. 1, e xc . 9 & at t ach. 2, a pp. A
. Thus , e a c h o f the he a r i ng r e que s t s putf

o r war d i s s ue s we l l wi thi n the c o ns i de r a t i ons the s ta tu te h a s d e n o te d a s a p p r o p r ia te fo ra P S D p u b li c h e a r in g – n a m e ly, “t h e a i rqu al i tyi m p actof s u ch sourc e, al t ern at i ves th eret o, cont r ol te c h n o log yreq u irem en ts, an d oth er a p p ro p riate co n sid era ti o n s.” 4 2 U
. S
. C
. § 7 4 7 5 ( a) ( 2 )
. T h e R egi on ’s R es p on se and S u p p l em ent al R e s po ns e c o nc e de t h i s i s s ue . Reg
. 9 Suppl
. B r . a t15; R e g . 9 Res p. at9- 1 0
. W h er e, as here , th er e a r e s ever al hear i n g r eq u est s, ea ch r a i s i ng i s s ue s the s t a tut e ha s defi n ed as mat e r i a l t o the he a r i ng , the R egi on h a s a n o bl i g a t i o n t o c o ns i de rthe m a s a f a c t o ri n de c i di ng t h at th ere m ayb e a si gn ific a n td egree of p u b l i c i n t erest , n ot j u st d et erm i n i n g th atcom m ent er s can sub m i tth ose concern s i n w r i t i n g in l i e u of h av in g a p u b li c h ea rin g u n d er 4 0 C .F .R . § 1 2 4 .1 2 (a)(1 ). S econd , al th ou gh th e nu m b erof hear i n g r equ ests w as not overw h el m i n g, nei th erw as i ti n sub st ant i al
. H er e, as note d above, ea ch o f th e in d iv id u a ls filin g h e a r i n g re q u e sts id e n tifie d iss u e s re le v a n t to th e d raf t p erm i t
. O n e of th e req u est ors, M r. S i m p son , rai sed i ss u e s in so m e d e ta il. A n o th e r r e q u e sto r, M s. S tra n d , w a s p a rtic u la rly in sis te n t. M s. S tr and did n otm er el yf i l e on e hear i n g r equ es t , s h e f i l ed t h r ee. W h e n th e R egion i n d i cated i tw as n ot i n cl i n ed t o gran th er r eq u est s, M s . St r a nd woul d no tt a k e “no ” f o ra n a ns wera nd c ha l l e ng e d theSI ERR A PAC I FI C I N D U STRI ES 39

Forc o m paris on, L os Ang el esCount y and Sa n D ie g o Count

y , two more 21 urb an/s ub urb anCal ifo rn iac o unti es o f rou gh ly comparab le areato Sh ast a Co unty, h ave populationsof 9,818,000 a nd 3,095,000, re spe ctiv ely . U .S. CensusBurea u, State and C o unty Quick Fac ts (June 6, 2 01 3). The pop ulatio n per squ are mile f or Los A ngeles C o unty, S anD i e g o C o unty, an dS h a s t a C o unty i s 2 , 4 1 9
. 6 , 7 3 5
. 8 , an d4 6
. 9 , re s p e c t i v e l y. (c ontinue d...) R egi on t o exp l ai n th e basi s f o r i t s d eni al
. F u r th er , th e R egi on ’s p r el i m i n aryden i al of

M s. S tr and ’s h ea r i n g r equ es tl ed C C A , an o rg an ization to w h ic h M s. S tran d an d tw o of th e o th er P etit ion ers b elo n g , to i m m ed iately p etit ion th e B o ard fo r rev iew o f th a t “ d en ial.” F in a lly, g iv e n th a t M s. S t ra n d h a d sig n e d h e r re q u e sts a s th e c o -ch a ir of C C A an d C C A had chal l enged th e R egi on ’s den i al of M s. S tr and ’s h ear i n g r equ es t , i tw ou l d be u n f airt o char act er i ze M s. S tr and ’s h e a r in g re q u e s t a s o n ly r e p r e s e n ti n g a s in g l e i n d iv id u a l. C o ll e c ti v e ly, the se c i r c um s t a nc e s s tr i k e the B o a r d a s di s t i nc t l ydi f f e r e nttha n the s e v e r a l i ns t ances in w h i c h the B o a r d ha s uphe l d a he a r i ng de ni a l i n the fac e o f a sin g le h ea rin g req u es t. S ee A t t l eb o ro , s l i p o p. at90- 91, 1 4 E .A .D . a t _

_ _ (o n e h e a rin g re q u e st) ; S u n o co , U I C A ppe a l N o . 05- 0 1 , a t 1 3 (o n e h e a rin g re q u e st) ; C ity o f F o rt W

o rth , 6 E. A. D. a t407 (o n e h e a rin g re q u e st) ; O s age , 4 E .A .D . at 3 9 9 (on e h ea rin g req u es t). T u r n i n g to th e nu m b erof pu b l i c c om m ent s, th e di st i n ct i on b e tw e e n th e p re se n t ca se a n d p r io r d e c isio n s u p h o ld in g h e a rin g d e n ia ls b ecom es eve n m or e c l ear . T h e R egi on r ece i ved fi f t een com m ent s on th e S ie r r a P a c i f

i c d r a f t p e r m it , t w e lv e o f

w h ic h w e r e a d v e r s e . In c o m p ar i son, i n the pr i o rpe r m i tc a s e s i n whi c h the A dm i ni s tr a t o ro rthe Bo a r d u p h e l d h e a r i n g d e n i a l s , t he r e g e n e r a l l ywe r e o n l yo n e o rtwo p u b li c c o m m en ts fi led
. S ee S u n o co , U I C A ppe a l N o . 05- 01, a t13 (tw o p u b l i c c o m m e n ts) ; C ity o f F o rt W

o rth , 6 E. A
. D
. a t407 ( o ne p u b l i c c o m m e n t); O s age , 4 E .A .D . a t 3 9 9 (o n e a d v e rs e p u b lic c o m m e n t); see a l

so A t t l eb o ro , s l i p o p . a t9 0
- 9 1 , 1 4 E. A. D. a t_ __ (“ li m it e d c o m m en ts”). M or eover , i ti s i m p or t ant t o not justf ocus on th e r aw nu m b er s. C on t ext i s r el evan t. T h e Sie r r a Paci f i c f aci l i tyi s n ot l ocated i n a m ajor u rb an or s u b u rb an area. T h e C i tyof A n d erson h as a po pul a t i o n o f

a ppr o xi m a t e l y10, 000. U
. S. C e ns us B ur e a u, St a t e a nd C o u n t y Q u ic k F a c ts (J u n e 6 , 2 0 1 3 ). S h a sta C o u n ty i tse lf is re la tiv e ly spar se l ys ett l ed, h avi n g a p op u l at i on of app r ox im at el y17 7 , 0 0 0 s p r ead ov er ne arl yf

ou r m i l l i on sq u are m i l es. Id . T h e R eg ion , h o w ev er, 21SI ERR A PAC I FI C I N D U STRI ES 40

(.. .c ontinue d)

21 Id
. In its Sup pl eme n t al Respo nse, the Region describes the num ber of notices 22 that wen tt o r esid ents of Shasta County as “many .” Re g. 9 Sup pl. Resp. at 13. No citation to t

he re cord isprovide d to suppor t t hisa ss er tion. f a i l e d t o pr o v i de a nymetr i c t o e v a l ua t e the l e v e l o f the r e s pon se to the S ie rra P a c ific d ra ft p e rm it, su c h a s e x a m p le s o f th e lev e l o f th e p u b lic r es p on se s een in o th ercom m u n i t i es of com p ar abl e s i ze w h en p r es ent ed w i th a n ot i ce of draf tP S D perm i t s. I n st ead, th e R egi on si m p l yc o m pa r e d the numbero f r e s po ns e s t o the pe r m i tno t i c e ( f i f t een com m ent s i n cl u d i n g th r ee h ear i n g r equ es t s) t o th e n u m b erof noti ces s e nt( o v e r1, 000)
. Eve n a s t o the s e number s , the R e g i o n pr e s e nt e d no com p arat i ve an al y si s d at a t o s u p p ort i t s con cl u si on th at th is re sp on se rate w as in sign ifi ca n t. A ddi t i o na l l y , the B o a r d f i nds thi s c o m pa r i s o n o f l i m i t ed va l ue be c a us e the R e g i o n di d no ti de nt i f y , w i th a nys pe c i f

i c i ty , the g e o g ra p h ic d i s t r i b u tio n o f th e n o tic e s. T h e R e g io n ’ s R e sp o n se m e re ly st at es th atth e n oti ces w ere m ai l ed an d e- m ai l ed t o “ agen ci es, or gani zat i on s, and pu b l i c m em b er s f orw h om cont acti n f

o rm at i on w as o b ta in e d th ro u g h a n u m b e r o f d iffe re n t m e th o d s, in c lu d in g re q u e sts m ade d i r ect l yt o E P A th r ou gh R egi on 9’s w ebsi t e ( orth r ou gh oth er m e a n s) fro m p a rtie s s e e k in g n o tific a tio n re g a rd in g p e rm it ac tio n s in C al i f or n i a, w i th in th e S C A Q M D , and oth erpart i es know n t o E P A th at m ay ha v e a n i nt e r e s t i n thi s a c t i o n. ” R e g . 9 R e s p. a t 3. G i ven t h at p art i es r eceivi n g n oti ces in c l u d ed n ot j u sti n d i vid u al s i n th e m ost d irectl yaff

ected com m u n i ty , b u tal so p erson s th rou gh ou tC al i forn ia who ha v e e xpr e s s e d i nt e r e s ti n PSD perm i t s, iti s po s s i bl e tha tthe m a j o r i tyo f the s e no t i c e s we ntt o i ndi v i dua l s o ro r g a ni z a t i o ns o ut s i de o f S h a s ta C o u n ty. 22 In su m , a b se n t so m e c o n te x tu a l an a lysis o f th e re s p o n se ra te to th e S ie rra P a c ific d ra ft p e rm it n o tic e , it is h a rd fo r th e B o a rd to d e t e r mi ne wh a tb a s i s th e Re g i o n h a d f o ri t s c o n c l u s i o n th a t“ we re c e iv e d v e ry little in d ic a tio n th a t th e p u b lic a t lar g e w a s in te re ste d in th i s p e r mi td e c i s i o n . ” R e g . 9 Re s p . a t8
. No t a b l y , a s d i s c u s s e d b e l o w, S h as t a C ou n tyrea ch ed p r eci se l yth e opp osi t e c on cl u si on on t h e degr eeSI ERR A PAC I FI C I N D U STRI ES 41

TheReg ion claim s in its SupplementalResponsethat it consulte d with the 23 SCAQMD“ about

thelev elof publicinteres t.” The Re g ion, how ev er , has not cite d to any d o cu m entation of

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tion in t he adminis tra

tiv e re cord nor provide d any inf ormation reg ardingw

hat wasle ar ned. of p u b l i c i n t er es t i n th e S i err a P aci f i c p r oje ct i n i t s E I R p roce edi n g, w h ere itrec eiv ed a sim il ar n u m b er o f co m m en ts. T h i r d , th e l evel of

pu b l i c par t i ci p at i on i n l ocal proce edi n gs on th e S ie rra P a c ific p roj e c t in d ic a te s th a t th e d e g re e o f p u b lic in te re st in th e p roj e c t w a s s ig n ific a n t. P u r s u a n t to th e C E Q A , th e S h a sta C o u n ty D e p a r tm e n t o f

R e s o u r c e M a n a g e m e n t ( “ S C D R M ” ) p r e p a r e d a n E IR o n th e p ro p o se d S ie rra P a c ific c o g e n e r a t io n u n it. T h e p u b lic p art i ci p at i on proce ss f

orprodu ct i on of

th e E I R i n vol ved ci r cul at i on of a dr a f tEI R f o rc o m m e nto n A ug us t6, 2010, two s ubs e que nt c i r c ul a t i o ns o f

a r e v i s e d draf

t E I R i n r e s po ns e t o publ i c c o m m e nt s a nd n ew i n f or m at i on pert ai n i n g t o th e pot ent i al g ree n h ou se gas i m p act s of th e p r oj e c t , a n d r e l e a s e o f th e f i na l E I R i n M a y2 0 1 2
. T h e S CDRM r e c e i v e d f

o ur t e e n c o m m e nt s o n the f i r s tdr a f tr e po r ta nd f

o ur a d d itio n a l co m m e n ts o n e a c h o f t h e r e c irc u la te d d ra ft E IR s. I n to ta l, th e SC D R M r ece i ved com m en t s f r om s i x t een d i f

f er ent part i es ( th r ee o f th e c o mm e n t e r s c o mm e n t e d o n e a c h o f th e d r a f t s )
. I n i t s f

i n a l E I R, the SC D R M e xpl a i ne d tha ti tha d r e l e a s e d a r e v i s e d EI R f o rc o m m e nt (th e firs t re v ise d E IR ) b e c a u se o f “ th e re la tiv e ly h ig h p u b lic in te re st in t he [ g r e e n h o u s e g a s ] t o p i c . ” Fi n a l EI R § 1
. 0
- 3
. I n o th e r wor ds , t he S C D R M co n clu d ed th at fou rteen p u b li c c o m m e n ts on th e S ierra P ac ifi c p ro

je ct s h o w ed “ relative lyh igh p u b li c in terest.” Id
. 23 A lth o u g h th e R e g io n is c h a rg e d w ith m a k i n g its o w n a ss e ss m e n t as to th e degr ee of

pu b l i c i n t er es tun d ers ect i on 12 4
. 1 2 ( a) ( 1 ) , th e R egi on f a i l s t o e x p l a i n w h yi tr e a c h e d a d i f f e r e n tc o n c l u s i o n th a n th e S CDRM w h en f aced w i th a si m i l ar nu m b er of com m en t ers. Si e r r a P a c i f

i c a r g u e s th a t“ th e a d mi n i s tr a t i v e r e c o r d s h o ws the r e wa s l i t t l e publ i c int e r e s ti n the Pr oj e c tthr o ug ho utthe pe r m i t t i ng pr o c e ss , incl udi ng dur i ng the C EQ A r e v i e w. ” Si e r r a Pa c i f i c R e s p. a t 7 . A s s u p p o rt, S ie rra P a c ific c ite s to a J u n e 1 5 , 2 0 1 2 e -m a il th a t a Si e r r a Pa c i f

i c e x e c u t i v e s e n t t o th e Re g i o n d e s c r i b i n g a p u b l i c he a r i ngSI ERR A PAC I FI C I N D U STRI ES 42 b e f o r e th e S h a s t a Co u n tyP l a n n i n g Co mm i s s i o n o n th e F i na l E I R. T h ate- m ai l r ead s: T h e SP I A n d er son E I R and S p eci al U se P erm i tw as a p p ro v e d a t th e P la n n in g C o m m iss io n yes te rd a y w ith a 4- 0 vot e. T h e au d i ence had tw o ci t i zens th ats p oke againstth e proj ectand had r ece i ved t w o l ett er s p r i or t o th e m eet i n g: one f r om [th e C ent erf

orB i ol ogi cal D i ver si ty( “C B D ”) ] , anot h erf r om C al tr ans [ S t at e of C a l i f o r ni a , D e pa r t m e nt o f Tr a ns po r t a t i o n]
. O ne of the ci t i zens was s u gges t i n g th atth e proj ectl ook i n t o s ol ar “con es ” a s th e l at es tnan o- t echn ol ogyf oren ergy pr o duc t i o n; the o the rc i t i z e n wa s con cerne d tha tthe p ro je ct sh o w ed 3 3 0 ,0 0 0 ton s o f [car b o n d iox id e] left u n m itig a te d a n d c o m p a re d th is to 6 3 ,0 0 0 c a rs . I ’ ll f o r war d the CB D l e t t e r– i twa s pr i m a r i l yf o c us e d a nd re iterat ed th e sam e p ri or com m en t s on [ green h ou se gases] an d carb on n eu tral i tyt ow ard s b i om ass. O ver al l , i tw as veryp osi t i ve w i th th e l ocal s u p p or ton th e p ro je ct an d lack of a tt en d ee s. * * * A s th is re la te s to th e P S D p e rm it, h a v in g n o p u b lic m eet i n g s t i l l looks app r op r i at e a n d w e s h ou l d f ocus on co m p leti n g th e d raft of th e p erm it* * *. E
- m ail f ro m D av id C . B ro w n , E n v tl . A ffairs & C o m p li an ce M g r., S ierra P ac . In d u s ., to O m er S h alev & G era rd o R ios, E P A R eg . 9 ( Ju n e 15 , 20 1 2 ) ( A d m i n . R ec . I. 3 2 )
. S i err a Paci f i c a r gu es th atth e f

act th at th ere w ere on lytw o sp ea k ers a t th e h ea rin g (n eith er o f w h o m are p et i t i on er s i n th i s app eal ) an d tw o op p osi t i on l ett er s r ece i ved de m o ns tr a t e s a l a c k o f

s i g ni f i c a ntpubl i c i nt e r es t
. S i e r r a Pa c i f i c R e s p. a t 6
. In th e B o a r d ’ s v ie w , th is e v id e n c e s h o w s th e c o n tr a r y. I t d e m o n s t r a te s th a t, e v e n p rio r to th e in itia tio n o f th e R e g io n ’ s p u b lic p art i ci p ati on proce d u r es on t h e f eder al perm i t , ci t i zens a t t end i n g a p u b li c h ear i n g, a p u b l i c i n t er es tgr ou p , and a st at e gove r n m ent age n cy w er e r ai si n g issu es
– i ss u es on ai rqu al i tyi m p act s and al t ern at i ve p ow ert echn o log ie s
– th atar e r el evantt o a P S D perm i thear i n g. F u rth e r, w h ile , a s d i sc u ss e d b e lo w , it w a s u p to th e R e g io n to m a k e itsSI ERR A PAC I FI C I N D U STRI ES 43

Ala y na Shulman, Activists Lose Bid to Sto p Pla nt, S i erra Pacific Gets OK 24 from Shast

a Count y , Rec . Se archl ight ( Re dding , C al .), July 18, 2012, at A001; Ala

y na Shu lman, Gr

ou p Objects to New Power Plan t, Sierra Pa cific’s Burn Pla n Con tested, Rec. Se archl ight (Redding , Cal.) , July 15, 2012, at B001; D amon A

rthur , Pow er

Pl ant N ear Anderson OK’d, Fa cili t

y Wou ld Emit 3 30,00 0 To ns of Gases, Repo rt Says , Rec. Se archl ight (Re dding , Cal .), June 15, 2012, at A 001; D amon A

rthur , Plant

to Have M

inor Im pact , New Report C allsFac ili ty

“C arbon Ne utral , ” Re c. Se archl ight ( Re dding , C al .), Feb. 19, 2012, at A001.

Edi tori al , W

hen Convenient

, Env ironmentali

st s Ignore theLong R un , Rec. 25 Se archl ight ( Re dding , C al .) , July 18, 2012, at A006; E ditorial, RenewablePower Is n’t (c ontinue d...) o w n in d ep en d en t ju d g m en t o n t h e d eg ree of p u b li c in terest, th e B o ard p la c e s g re a te r w e ig h t o n S C D R M ’ s j u d g m e n t o n th e d e g re e o f p u b lic i nt e r e s ta s e xpr e s s e d i n it s publ i s he d EI R tha n o n the j udg m e nto f the p erm i tapp l i cant a s exp r es se d i n an e- m ai l , w h i ch, on i t s f ace , advocat es a ce rta i n posi t i on ( “h avi n g no p u b l i c m eet i n g s t i l l l ooks ap p ro p riate”). F ou r th , as s u gges t ed b yth e R egi on , th e B oar d has e val u at ed m e d ia re p o rts o n th e p roj e c t as a n in d ic a to r o f th e d e g re e o f p u b lic i nt e r e s t
. A l tho ug h the R e g i o n di d no ti nc l ude a nya na l y si s o f the m edi a c over age of

th e Sie r r a Paci f

i c c ogener at i on un i t , th e B oar d ca n t ake of f i ci al noti ce of

i t em s ap p ea ring i n th e pu b l i c pre ss t o s h ow w h at i n f o r ma t i o n i s i n th e p u b l i c r e a l m. In re S to n eh a ve n E n e rg y M g m t., LLC , U I C A p p ea l N o . 1 2
- 0 2 , s li p op . at 1 8 n .1 1 (E A B M ar. 2 8 , 2 0 1 3 ), 1 5 E .A .D . _

_ _ ; cf

. Von Saherv . N

or t on Si m on M u s e um of Ar tat Pas ade na , 57 8 F
. 3 d 10 1 6 , 1 0 2 2 ( 9 th C i r . 20 0 9 ) ( “C ou r t s m ayt ake j udi c i a l no t i c e o f

publ i c a t i o ns i ntr o duc e d t o ‘ i ndi c a t e wha twa s i n the p u b l i c r eal m atth e t i m e, not w h eth erth e c on t ents o f th o se art i cl es w er e i n f

act tru e.’ ” (q u ot i n g Be na k v . Al l i an c e Capi tal

M gmt
. , LP , 4 3 5 F
. 3 d 3 9 6 , 4 0 1 n . 1 5 ( 3 d C i r . 2 0 0 6 ) ) )
. A se ar ch of a co m m erci al da t a ba s e di s c l o s e d ne a r l ya d o z e n a r t i c l e s i n l o c a l pa pe r s a bo utthe Si e r r a Pa c i f

i c pr oj e c ti n the months l e a di ng up t o a nd f o l l o wi n g the com m ent peri od
. T h e Rec or d Se ar c hl ightca rri ed fournew s art i cl es ch ro n ic li n g th e d isp u te ov er th e C E Q A rev iew p ro ce ss fo r th e S ierra P a c ific p roj e c t b e fo re th e S h a sta C o u n ty S u p e r v i so rs a n d th e S h a sta C o u n t y P l a nni ng B o a r d a nd thr e e o pi ni o n pi e c e s o n the mer i t s o f the 24 p r oje ct
. I n one i n st ance, a Rec or d Sear c hl ightne ws a r t i c l e o n the

25SI ERR A PAC I FI C I N D U STRI ES 44

(.. .c ontinue d)

25 Green Enough f

or Env iro Group , Rec . Se archl ight ( Re dding , C al .), June 14, 2012, at A 006; E ditorial, W

ithout Cl ari ty , Gre enhous e- GasCr

usadeIsFutile , Rec . Se archl ight (Redding , C al .), Feb. 23, 2012, at A004.

D amon A

rthur , Us e Permit Approved for Anders on Cogener

ation Plant, 26 Chi co Enter.- Re c. (C al .), June 15, 201 2 ; Damon Arthur , Us e Perm it Approved for Anders on Cogener

ation Plant, O rovill e Mercury Re g . ( Cal.) , J

une 15, 2012. D amon A rthur , Bi omass Plant ’sEnvironmental Benef itsU p for D ebate , Rec. 27 Se archl ight ( Re dd ing , C al .), A pr. 27, 2013; D amon A rthur , EP A Se ek ing Public Com ment on SPI Plant

Near Anders on, Re c. Se archl ight (Redding , Cal.) , Sept. 22, 2012. Si e r r a Pa c i f

i c pr oj e c t was pi c k e d up by o the r ne ws pa pe r s i n t h e r e g i o n, th e C h i co E n t erp rise-R ec o rdand th e O rovi l l e Mer cury R egister . The 26 Rec or d Se ar c hl ighta l s o publ i s he d a ne ws a r t i c l e o n the R e gi on ’s r e que s tf

o rc o m m e nt s o n the f e de r a l PSD pe r m i ta nd, o n A pr i l 27, 2013, r a n a n a r t i c l e o n bi o m a s s po werpl a nt s tha tdi s c us s e d the p ro p o se d S ie rra P a c ific c o g e n e ra tio n b o ile r. T h i s l e v e l o f m e d ia 27 c o v e ra g e su g g e sts th a t, in fa c t, th e re w a s a fa ir a m o u n t o f p u b lic in te re st in th e d ra ft p e rm it. The f i f th f a c t o rme n t i o n e d a b o v e i s th e s i g n i f i c a n c e o f

the p r o p o s e d a c t i o n . Un l i k e i n Nor anda , th e p e rm it at is su e h e re is n o t a m i no rmodi f

i c a t i o n t o the e xi s t i ng PSD pe r m i tr e s ul t i ng i n l i t t l e - t o - no c ha ng e i n e m i s s i o ns , buta maj o rmodi f i c a t i o n t o a pe r m i ti nv o l v i ng constru ct i on of

a n ew boil er . S i m il arly , i n app osi t e t o Spokane , the p e rm it re v ie w d o e s n o t co n c e r n a sin g le , n a rro w iss u e . T h u s, th e re is no r e a s o n t o di s c o untthe de g r e e o f publ i c i nt e r e s tdue t o the in sig n ific a n c e o f th e a c tio n c o v e re d b y th e p e rm it. Fi na l l y , the B o a r d c o ns i de r e d whe the rthe R e g i o n pr o v i de d a s ubs t i tut e o ppo r tuni ty t o the he a r i ng r e que s t o r s t o pa r t i c i pa t e i n t he p r o c e e d i n g a s o c c u r r e d i n Spokane a nd O s age . T h e R e g io n d id com m u n i cate b ye- m ai l w i th M s. S tran d an d M r. S i m p so n . T h ese c o m m uni c a t i o ns di d s e r v e a publ i c pa rt i c i pa t i o n purpo s e bypr o v i di ng i n f or m at i on r el evantt o s om e of th ei rs t at ed i n q u i r i es . H ow ever , f or tw o r eas on s, th e B oar d concl u d es th atth es e c om m u n i cat i on s h ave, at b e st, a m a rg in a l im p a c t o n d e te rm in in g th e d e g re e o f p u b lic in te re st.SI ERR A PAC I FI C I N D U STRI ES 45 F irs t, th e in te r a c tio n h e re fa lls fa r sh o rt o f w h a t o c c u rre d in Spokane ( publ i c m eet i ng ) a nd O s age (fa c e -to-fa c e m e e tin g w ith h ear i n g r equ es t or i n w h i ch th e r equ es t or w as p erm i t t ed t o sub m itoral c o m m e nt s f

o r the r e c o r d)
. M r . Si m ps o n’ s que s t i o ns wer e o f a no ns ubs t a nt i v e na tur e ( e . g . , wha ti s the c o nt a c ti nf o r m a t i o n f

o rthe a p p lic a n t; w h a t ar e th e m o st re le v a n t p o r t io n s o f th e re c o rd to c o n s id e r ) a n d th u s th e R e g io n ’ s re s p o n s e to t h e m c a n n o t, in a n y w a y, b e d escri b ed as p rovidin g a su b st i tu t e p rocess for an i n t erest ed p artyto h a v e its v i ew s h eard
. W i th r egard t o the co m m u n i cati on s w i th M s. S tr and , th e R egi on did n otprovi d e a f u l l r es p on se t o th e qu es t i on s of M s. S tr and th atth e R egi on d id a d d r es s; r ath er , i tm ai n l ydir ect ed h er to d o c u m e n ts in th e re c o rd . A lth o u g h th is in te rc h a n g e d id p e rm it M s . St r a nd t o i de nt i f

ydo c um ent s r e l e v a ntt o s o m e o f the que s t i o ns s he h ad ra i se d , th e l i m i t ed n atu r e of th e com m u n i cat i on s f r om th e R egi on m a k e s i tdi f

f i c ul tt o c o nc l ude tha tthe c o m m uni c a t i o ns pr o v i de d a su b sti tu te p articip ation p ro ce ss q u alit ative lyd iff ere n t th an a stan d ard req u es t f o r w ritten co m m en ts. S e c o n d , a n d m o re im p o rta n t, th e R e g io n fa ile d to re sp o n d to M s . St r a nd’ s de m a nd tha tthe R e g i o n s pe l l o utho w i twoul d de t e r m i ne w h e th e r th e “ sig n ific a n t d e g r e e o f p u b lic in te re st” sta n d a rd w a s m e t. S ee R eg . 9 R es p . att ach. 2, ap p . A , at4 (“W h atar e y ou rage n c[ y ’ ]s p ro c e d u re s fo r d e te rm in in g th e th r e sh o ld re q u ire m e n t to h o ld a p u b lic he a r i ng ?” )
. M s . St r a nd’ s que r ywa s mad e e a r l ye no ug h i n the com m ent peri o d th ata p r om p tr es p on se f r om th e R egi on coul d have m ad e a d i ff

eren ce in h ow M s. S tran d f ram ed h er s u b seq u en tr eq u est s. Y et , i n st ead of

provi d i n g f

u r th eri n f

or m at i on on h ow th e R egi on e v a lu a te d th e d e g re e o f p u b lic in te re st in a h e a rin g , th e R e g io n sim p ly re fe rre d M s. S tran d t o the A A Q I R on th e d raf tp erm i tan d r ep eated ly ur g e d he rt o s ubm i twr i t t e n c o m m e nt s . Th e A A Q I R ment i o ns the r egul at or yt es tof

“si gn i f i ca n t d eg ree of

pu b l i c i n t er es t ” bu tdoes not f ur the re xpl a i n tha ts t a nda r d. A A Q I R a t46. The Boa r d c o nc l ude s tha tthi s f a c t o rs uppo r t s no g r e a t e rtha n a n egli gib l e red u ct i on i n ch aract eri zati on of th e d egree of p u b l i c i n t erestSI ERR A PAC I FI C I N D U STRI ES 46

The Boa

rd al so cons idere d theparti es ’sc ontentionsa bout t he demogra

phic 28 facto rs be ari n g onenvir o nmenta l j u st ic e. Ho we v e r , b e c au se n o n e o f th e p art ie s h ave cl ea rly arti cul ated themanner in w hic h s uch inf

ormation shoul d bere lie d upon in deter miningwhet

her any particula r se t of fact s amountsto a si gnif

ic ant de gre e of publi c interest, th e Board h as given demographi c inf orma tionand environmental justice cons iderationsno wei ght in de termining w het her theRe g ion erred in denyingthehe aring requests in th is ca se.

The Boa rd al so is troubl ed by v arious statement s in t he adminis tra

tiv e re cord 29 that rai seque stionsa s to w het her the Reg ion a

pproache d thepubli c hea ringis suewith anop enmin d . Inane-mail sent mo nth s b efor e th e co m ment p eri o dop en edonth e draft f ederal permit, a

Sierra Paci f

ice x ecut ive r ep o rts to theRe g ion on thepubli c hea ring bef oreloc alg ov er

nmentalof

f ic ialsand s tate s that “ ha ving no p ub lic mee ting

still loo ks appropriate .”E- mai l f

rom D avid C . B row

n, Envtl. A f

f airs& Com

plia nceMgr., Sierra Pac. Indus ., to O mer Shalev&G erardo Ri os, EPA Re g . 9 ( June15, 2012) (Admin. Re c. I.32) (e m

phas isadded) . View ed ev en in t he bes t l ight, thishighlighte d phra sec ould be cons true d a s par

t of Sierra Paci f

ic ’son-g oings ug g es tionsto theRe g ion t hat a publi c hearing was not needed. Alternatively , the highl ighted ph rase coul d be read as sug g es ting that t

he Re g ion alre ady

had madethi s deter

mination at

le as t t hre e months bef orethepubli c com

ment period opene d on the dra f t permit – and bef

ores ome citiz ens had notic e of

theproj ect –an dcom

m unic ated with Sierra Paci f icat s ome point bef

ore or af ter making this dec is ion. L ater , the Re g ion responded to Ms . St ra nd’sre ques t, ea

rly in t he c om ment peri od, f or a publichearingby

adv is ingher t

hat “ EPAdoe s not currently

(c ontinue d...) in a h e a rin g o n th e d ra ft p e rm it. A lth o u g h th e B o a rd is w i l l i n g to 28 co n sid er th e im p ac t of form s o f su b sti tu te p ro ce ss d iff er e n t th an w ere us e d i n Spokane a nd O s age , th e tru n c a te d a n d se le c tiv e e -m a il c o m m u n ic a tio n s in th is c a se d o n o t rise to th e lev e l o f a su b stitu te m e a ns o f publ i c pa r t i c i pa t i o n. A f t e rwe i g hi ng e a c h o f

the s e f a c t o r s , the B o a r d ho l ds tha tthe R e g io n a b u s e d its d isc re tio n in d e te rm in in g th e d e g re e o f p u b lic i n t e re st. M ostof th e fact ors s u p p ortth e con cl u si on th atth ere i s a s i g ni f i c a ntde g r e e o f

publ i c i nt e r e s ti n a publ i c he a r i ng a nd no ne o f the fact ors s u p p o rtth e op p osi t e con cl u si on i n a m ean i n gfu l m an n er. M ost i n f l u ent i al i n th i s w ei gh i n g proce ss i s th at thr ee p art i es i d ent i f i ed m u ltip le iss u e s re le v a n t to th e P S D p e rm it to b e ra is e d a t a p u b lic h e a rin g , a to ta l o f fifte e n c o m m e n ts w e re re c e iv e d o n th e d ra ft p e rm it f ora f aci l i tyi n a r el at i vel ys p ar se l ypop u lated coun ty , and th e l ocal g o v e rn m e n t h a s d e sc rib e d th e p u b lic in te re st in th e S ie rra P a c ific p ro je ct as “ relative lyh igh .” 29SI ERR A PAC I FI C I N D U STRI ES 47

(.. .c ontinue d) 29 p l an t o hold a public hea ring f or this pro po sed action, ” Reg. 9 Re sp. a ttach. 2, app. A, at 3, a nd point edly

ignore d her reque st

f or a n e xpla nation of what thre shol d s howings he nee ded to make to obtain a hea ring . Thisf

ai lureto re spond to Ms . St ra nd’sre ques t f

or cl arif ic ation is par

ticula rly g la ringin light of

Ms . St ra nd’sprom

pt attem pt to re ctif

y the d e fi c i e n c y i nh e r

h e ari n gre qu e s t th at th e Re g i o n h a d i d e nt i fi e d( i
. e . , fa i lur et o sp e c i fy a li st o f is su es f

o r th e h ear in g), an dhe r i n si st ent an drep eat edde man d s fora pub li c h ear in g. Rather t han re spond to Ms . St

ra nd’sre ques t f

or c la rif ic ation on thethr esh o ld f or ob tainin g a hearing, the Region repeatedly urged her to submit wr i tt en com ments. Although w

hen v iew ed independently the ses tatement s may

beof no moment , in com bination, they cr eate thea ppea ra ncethat t he Re g ion had pre

judg ed thene ed f

or a hearing and ref

used to reconsider thi s positi onin light o f later c ircum stances with an open mind. The Boa r d’ s h ol d i n g i n thi s c a s e i s no ti nt e nde d t o tur n the “si gn i f i cantdegre e of

pu b l i c i n t er es t ” s t and ar d i n t o an ev alu ati on of w h eth erth er e i s any pu b l i c i n t er es t
. N ei th eri s i ti n ten d ed t o r edu ce a p e rm it iss u e r’ s d isc re tio n in m a k in g th e “ sig n ific a n t d e g r e e o f p u b lic i nt e r e s t ” de t e r m i na t i o n. A s t h i s de c i s i o n r e c o g ni z e s , the f a c t o r s the R e g i o n put f

o r war d i n thi s c a s e i n i t s Suppl e m e nt a l B r i e f ar e r e l e v a nt t o th atdet erm i n at i on . A d d it ional l y , th e B oar d i s n ots u gges t i n g th at th e f act or s con sid ere d i n th i s cas e a r e pre cl u si ve of th e c on si d er at i on o f othe rf a c t o r s be a r i ng o n the de g r e e o f publ i c i nt e r e s ttha tmaybe id en ti fied u n d er a d iff ere n t set of circu m stan ce s. N o n eth ele s s , th ere a r e l i m i t s t o the pe r m i ti s s ue r ’ s e xe r c i s e o f i t s d i sc r et i o n i n e v a l ua t i ng the de g r e e o f

publ i c i nt e r e s t
. I f

a p er m i t i s s ue rde c i de s no tt o ho l d a p u b lic h e a rin g u n d e r 4 0 C .F .R . § 1 2 4 .1 2 (a )(1 ), it m u st c le a rly articu late it s rea so n for th at d ec is io n b a s e d on th e typ e o f facto rs d i sc u ss ed i n th i s op i n i on i n l i gh tof th e c i r cum st ances of

th atca se . T h e r e m a n d fo r a p u b lic h e a rin g in th is c a se is c o n sis te n t w ith th e B oar d ’s r epeat ed em p h as i s on “t h e i m p o rtan ce of ensuri n g th at A gencydeci si on m aker s adh er e f u l l yt o th e pu b l i c par t i ci p at i on req u i r em ent of

[ th e Part12 4 ] r egul at i on s. ” I n r e Ch e v r o n M i c h

. , LLC , U I C A p p ea l N o . 1 2
- 0 1 , sl ip op . at 1 4 (E A B M ar. 5 , 2 0 1 3 ), 1 5 E
. A
. D
. ___. The B o a r d r e pe a t e dl yha s r e m a nde d pe r m i tde c i s i o ns fo r fail u re to c o m p lyfu ll yw ith t h e s e re q u irem en ts. E. g. , i d. a t14, 1 5 E
. A
. D
. at__ _ ( consid er i n g and r em and i n g perm i tbecause i tw as u n cl eari n th e a d m i n i str at i ve r ecor d w h et h erth e R egi on had com p l et ed resp on d i n g t o com m ent s p r i ort o i ss u ance of th e f i n al perm i tdeci si o n );SI ERR A PAC I FI C I N D U STRI ES 48 In re W eb er #4- 8 , 11 E
. A
. D
. 241, 244- 46 ( EA B 2003) ( c o ns i de r i ng a nd r e m a ndi ng pe r m i tbe c a us e the pe r m i ti s s ue rs i g ne d a nd mai l ed the resp o n se to co m m en ts l etter th ree d ays after sign in g th e fin al p erm it ); In R u ssell

C i t y E n erg y C tr. , PSD A ppe a l N o . 08- 01, s l i p o p. a t34- 39 ( EA B J ul y29, 2008) , 14 E. A
. D
. ___ ( c o ns i de r i ng a nd r e m a ndi ng pe r m i tbe c a us e o f

pr o c e dur a l pr o bl e m s wi th the publ i c no t i c e o f the d ra ft p e rm it); se e also I n r e Sh el lO

f f sho re , I n c. , O C S A ppe a l N o s . 11- 05 t o 11- 07, s l i p o p. a t8 9
- 1 0 0 ( EA B M a r . 30, 2012) , 15 E. A
. D
. __ ( c o ns i de r i ng a l l e g e d i r r e g ul a r i t i e s a tthe publ i c hea r i ng a nd i n the l e ng th o f

publ i c c o m m e ntpe r i od )
. M o r e o v e r , a s no t e d a bo v e , the B oar d s p eci f

i cal l yhas t aken int o ac coun tth e s t atu t or yobject i ves b ehi n d th e pu b l i c par t i ci p at ion p ro v i si on s of th e C A A i n r em and i n g a P S D p erm itfor failu re to c o m p lyw ith p art 1 2 4 re g u lati o n s. In re R o c k G e n E n e rg

y C tr . , 8 E
. A
. D
. 53 6 , 55 7 ( E A B 19 9 9 )
. T h e B oar d ’s v ie w is th a t ad h e re n c e to p ro c e d u ra l re q u ire m e n ts is c ritic a l to u p h o ld in g th e “ in teg rity” of th e p erm itrev iew p ro ce ss. In re C onoc oPhi l l i

ps C o. , 1 3 E .A .D . 7 6 8 , 7 7 6 (E A B 2 0 0 8 ); se e W eber , 1 1 E
. A
. D
. at24 6 ( “A l th ou gh th i s r em and m aynot res u l ti n any chan ge i n th e R egion ’s u l t i m at e p erm i td ecis i on , rem an d i s n on et h el ess a ppr o pr i a t e t o e ns ur e tha tthe pe r m i ti s s ue rf ul l yc o m pl i es w i t h the re q u ire m e n t to g iv e a d e q u a te a n d tim e ly co n sid e r a t i o n to p u b lic c o m m e nt s a tthe t i m e o f i s s ui ng a f

i na l pe r m i tde c i s i o n. ” )
. A r e m a nd f o ra publ i c he a r i ng o n the Si e r r a P ac i f i c pe r m i twi l l bo th s uppo r tthe in teg rity o f

th at p erm itp ro ce ed in g an d fu rth er th e C A A ’ s statu tory obje ct i ve of

adeq u at e pu b l i c par t i ci p at i on i n perm i tdeci si on m aki n g. B. T h e B o a r dNe e dN

o t R e so lv e W

h e th e r th e R eg io n A b u se dIts Dis c r e t i o n i n De ny i ng a Pu b l i c He a r i n g Und e r4 0 C. F. R. § 124. 12(

a) ( 2) M r . C ol em an ar gu es th atth e R egi on al so abu se d i t s d i sc r et i on b ynot gr ant i n g a p u b l i c hear i n g un d eri t s d i sc r et i on ary a u thori tyun d er 4 0 C
. F
. R
. § 1 2 4
. 1 2 ( a) ( 2 )
. C ol em an 1 stA m . P et
. at7. M r . C ol em an’s c la im h e re is th a t t h e R e g i o n sh o u ld h a v e e x e rc ise d its d isc re tio n to h ol d a p u b li c h ea ri n g because Sh as t a C ou n tyi s an en vi r on m ent alSI ERR A PAC I FI C I N D U STRI ES 49

Ms . S tr an dan dMs . D rai sn er ap p ear to make th e same argument, alth o u gh 30 not with ex

plic it re f erenc esto there gulatory

provis ion. EPA s tate d that “ Plan E J 2014 use s the term ‘ov er burdened’ to des cribethe 31 mino rity , low-in come, tribal and in digeno us po pu lation s or com m un ities in the Unit ed State s that pot entially

e xperiencedispropor

tiona te environmental har

m s and ris k s due to ex posureso r cum

ulativ e im

pac tsor gre ater

vulnera bility to environmentalhaza

rds .” 78 Fe d. Reg . 27,220, 27,220 ( May 9, 2013)
. just i ce com m u n i ty . E n vi r on m ent al just i ce consi d er at i on s m ay b e a 30 f a c t o rtha ta pe r m i ti s suer con si de r s whe n de c i di ng whe the rt o ho l d a d isc re t i o n a ry p u b l i c hear i n g un d er40 C
. F
. R
. § 1 2 4
. 1 2 ( a) ( 2 ) or cond u cts om e oth erf or m of pu b l i c out r eac h t o overb u r d ened com m u n i t i es . I n i t s r ece n tenvi r on m ent al just i ce n ot i ce, E P A s t at ed

31 tha ti t“do e s no t int end f o ri t s r e g i o na l o f

f i c e s t o e nha nc e e ng a g e m e nt op po r tuni t i e s i n e v e r y i ns t a nc e ” wher e a pe r m i t m a y a f f ectan overb u r d en ed com m u n i ty ; how ever , am on g th e e x am p l es of th e typ es of perm i t s th atm ayl ead a per m i t issu er to deci d e t o hold enh anced o u tre a c h w e re “ [c ]o n str u c tio n p e rm its u n d e r t h e [C A A ], e sp e c ia lly n e w m a j o r s o u rc e s (o r m a

j o r m o d ific a tio n o f so u rc e s) o f c rite ria p ol l u t ant s” i f

th e per m i t s i n vol ve s i gn i fican tpu b l i c heal th or e nv i r o nm e nt a l i m pa c t s a nd the c o m m uni tya l r e a dywa s o v e rbur de ne d. E P A A c tiv itie s to P ro m o te E n v iro n m e n ta l J u stic e in th e P e rm it A p p li ca ti o n P ro ce ss, 7 8 F ed . R eg . 2 7 ,2 2 0 , 2 7 ,2 2 3 (M ay 9 , 2 0 1 3 ). E P A fu rth e r n o te d th a t: E P A r egi on al of

f i ces have th e di sc r et i on t o use oth er consi d er at i on s t o pri or i t i ze E P A
- i ss u ed p erm i t s f or enh anced outr eac h th atdo n otm eetei th eror b oth of tho s e cri t e r i a . O ne i m po r t a ntc o ns i de r a t i o n woul d be w h eth er a co m m u n ityh as ex p ress ed co n c ern s o v er a p erm ita p p l i cat i on orr enew al
. * * * E P A exp ect s th at i twi l l o nl yi nf

r e que nt l ypr o v i de e nha nc e d o utr eac h f o rpe r m i t t e d a c t i v i t i e s i n r e s po ns e t o publ i c c o nc e r ns i n th e a b se n ce of

i n f or m at i on abou tpote n t i al si gn i fi can tp u b l i c h ealth or en vir on m en t al i m p acts
.SI ERR A PAC I FI C I N D U STRI ES 50

Moreov er , under 40 C.F .R. § 124.12( a)( 2 ), theRe g ion ha s broad la tit ude 32 w hen d eciding w

heth er to ho ld a p ub lic hearing to “clarif y one or more issues involved in t he per mit dec is ion,”bec aus e theregulation ex plic itly com mitssuch a dec is ion to the p ermitiss u er’ s “d is cre ti o n .” P et it io n ers wo u ldhave a h ighbar to su cceedona ch al le n ge to a permit is suer’ s dec is ion not to hold a dis cretiona

ry he aring
. See6 J acob A . St ein et al., Admin. Law

§ 5 1-0 3, at 51-2 43 (201 3) (“The narrowes t scope of jud icial review of an ag ency

fact findingis af

f orde d by the ar bitrar y , c apric ious , or

a buseof dis cretion te st .” ). Id

. a t27, 224. 32 F ortw o r eas on s, h o w ev er , th e B oar d does notneed t o r eac h th is q u es t i on . F i r st , th e B oar d has c on cl u d ed ab ove th atth e R egi on s ho ul d ha v e he l d a publ i c hea r i ng unde rthe manda t o r yhe a r i ng p r ovi si on i n 40 C
. F
. R
. § 1 2 4
. 1 2 ( a) ( 1 )
. S econd , P et i t i on er s h ave n ot cr edi b l yal l eged th at S h as t a C ou n tyi s an en vi r on m ent al just i ce c o m m u n ity. T h e ir c o m m e n ts o n th e d ra f t p e rm it co n ta in e d o n ly u n su p p or t ed ass ert i on s th atS h as t a C ou n tyi s an en vi r on m ent al just i ce co m m u n ityor e ll ip ti c al refe ren ce s to en v iron m en tal ju sti ce . R eg . 9 R e s p. a t t a c h. 1, e xc . 9, a t2 ( M r . C o l e m a n: “ I f the U S E PA u se s the p ro p er p o ll u ti o n sca le, w e fe el t h a t E n v iron m en tal Ju sti ce is se rv ed .”); i d. at7 (M r . S i m p son: “T h e E P A f ai l ed t o i d ent i f

yth e E n vi r on m ent al J u stic e c o m m u n ity in th e v ic in ity o f th e p ro p o se d p roj e c t.” ); id
. a t13 ( M s. S tr and : “T h i s [ p r oje ct ] is clearl yi n vi ol at i on of th e i n t ent of E n vi r on m ent al Ju st i ce i n w h i ch y ou rage n cyi s th e l ead f eder al ag en cy.”)
. T h es e s t at em ent s d o not r ai se th e qu es t i on of w h eth er Sha s t a C o untyi s a n e nv i r o nm e nt a l j us t i c e c o m m uni tywi th s uf f i c i e nt s p e c i f i c i tyt o p r e s e r v e th a ti s s ue f o rr e v i e w b yth e Bo a r d
. 4 0 C. F
. R. § 1 2 4 .1 9 (a )(4 )(ii) ; se e R o ckG en , 8 E. A
. D
. a t548 ( c o nc l udi ng tha tthe i s s ue “wa s no tr a i s e d wi th suf f i c i e nts pe c i f

i c i tydur i ng the c o m m e nt p e rio d a n d th u s w a s n o t p re se rv e d fo r re v ie w b y th e B o a rd ” ); see a lso I n r e Ec oEl é c tr i c a, LP , 7 E. A
. D
. 56, 69 & n. 17 ( E A B 1 997) ( no t i ng th a t th e R e g io n sh o u ld “ e x a m in e a n y ‘s u p e rfic ia lly p la u sib le ’ c la im th a t a m in o rity o r lo w -in c o m e p o p u la tio n m a y b e d isp ro p o rtio n a te ly af f ect ed b y a p art i cul arf aci l i ty , ” bu tr ej ect i n g a cl ai m of n on com p l i ance w i th th e E x ecut i ve O r d eron en vi r on m ent al just i ce b eca u se th e par tym ade n o “ sh o w in g” of a d i spr op or t i on at e i m p acton a m i n or i tyorl ow - i n com e c om m u n i tyor“even ex p l ai n [ ed] how orSI ERR A PAC I FI C I N D U STRI ES 51

One of Ms. Draisner’s sup plemental respon ses cont ains un do cumented 33 al le gationsto thee f

f ec t t hat Sha sta County

isa low-inc ome com

m unity . E -mai l f

rom Ce le st e Drai sner, CC A , t o Vic tori a Robinson, O f f ic e of Envtl. Justic e, EPA

(J une 13, 2013). H ow ev er , the f

ai lure to pres ent

the sef actual alle g ationsto theRe g ion c annot be cured by inc luding them in a petiti on f or rev iew , and certainly not by inc ludingthem f or thef irs t time in supplementalbri ef ing on a le g alque stion. See , e. g. , In re Ci ty of Palm dale , PSD A

ppeal N o. 11- 07, slip op. at 31 (EAB Sept . 17, 2012), 15 E.A .D . at ___ (“ The Boa

rd f re quently has re

je cted appe al s w

here is sue s tha

t w ere re as onably as certaina bleduringthec om

ment period w ere not rai se d at t hat ti m e, b u t inst ead were pre sente d fo r the f

irs t time on a

ppeal.” ), appeal

docke ted s ub nom . Simps on v . EP A , No. 12-74124 (9th Cir. De c. 18, 2012) ; RockGen , 8 E .A .D . at 546- 48. w h y a n e x am i n at i on of add i t i on al dat a w ou l d be exp ect ed t o r evea l su ch an im p ac t”). 33 In h is P e titio n , h o w e v e r, M r. C o le m a n a ss e rts th a t S h a sta C ou n tyal r eadyhas been i d ent i f i ed as an e n v iron m ent al just i ce c o m m uni tybythe B o a r d i n i t s de c i s i o n i n Kn a u f I
. C o l e ma n 1 s tAm. P et
. at6. M r . C o lem an is m i st aken; he h as m i sr ead t h e B oar d ’s d e c i s i o n i n Kn a u

f I
. I n th at case, th e B oard rem an d ed a P S D p e rm it b e c a u se th e re w a s n o t a s u ffic ie n t re sp o n se in th e re c o rd to en v iron m en tal ju sti ce co n ce rn s raised b ya co m m en ter. Kn a u f I, 8 E
. A
. D
. 1 2 1 , 1 7 5 ( EAB 19 9 9 )
. Th e Bo a r d d i d n o tma k e a f i n d i ng re g a rd in g w h e th e r a n e n v iro n m e n ta l j u stic e c o m m u n ity in S h a sta C ou n tywa s a f

f e c t e d bythe pe r m i ti n tha tc a s e . W he n the c a s e l a t er r e tur ne d t o the B o a r d, the B o a r d a g a i n di d no tr e a c h the f a c tual i s s ue o f whe the ra n e nv i r o nm e nt a l j us t i c e c o m m uni tywa s af f e c t e d bythe p erm it
. S ee Kn a u

f I I, 9 E .A .D . 1 (E A B 2 0 0 0 ). R ath er, th e B o ard u p h e ld th e R e g io n ’ s c o n c l u s io n th a t n o o n e in S h a s ta C o u n ty, i nc l udi ng a ny o ne i n a nye nv i r o nm e nt a l j us t i ce c o m m uni t i e s , woul d be a d v e rs e ly aff

e c te d b y th e p e rm it b e c a u se “ th e a d d itio n a l [p a rtic u la te m att er ] f r om th e propose d K n auf f aci l i tyw i l l not exceed t h e f eder al N A A Q S [ N a t i o na l A m bi e ntA i rQ ua l i tySt a nda r ds ] orPSD i nc r e m e nt fo r [ p art i cul at e m att er ]
. ” I d. at 1 6
. T h e B oard ex p ress l y ref u sed to c o n si d e r th e p e titio n e rs ’ c h a lle n g e to th e R e g io n ’ s d e m o g ra p h ic an aly sis of S h as ta C o u n ty
. Id
. a t17. A ccor d i n gl y , th e B oar d has notconsi d er ed w h eth erth e R egi on a b u s e d i t s d i s c r e t i o n i n n o th o l d i n g a pu bl i c h e a r i n g u n d e r4 0 C. F
. R. § 1 2 4 .1 2 (a)(2 ).SI ERR A PAC I FI C I N D U STRI ES 52 C. T h e B o a rd D eni es R evi ew of a N u m b erof P et i t i o n ers’C h a ll eng es as a Mat t e rof

Law A n u m ber of i s s ues r a i s e d by the P e t i t i one r s do not , as a m a t t e ro f

l a w, m eetthe thr e s ho l d r e qui r e m e nt s f o rr e v i e w bythe B o ard an d /or fail to d em o n stra te th at th e R eg ion erred . T h e B o ard a ddr e s s e s the s e c ha l l e ng e s i n the f o l l o wi ng page s , wi th the ho pe a nd i nt e nttha tthei r inc l us i o n i n thi s O r de rwi l l a s s i s ti n c l a r i f y i ng a nd str e a m lin in g fu tu re p ro c e e d in g s fo r th is P S D p e rm it. 1. T h e R eg i o n D i d No t C l ea rl y E rr o r A b u se It

s D iscretio n in P a ra p h ra sin g o r S u m m a riz in g P u b lic C o m m e n ts M r . Si m ps o n a nd M s. St r a nd e a c h s ug g e s ttha ti n r e s po ndi ng to p u b lic c o m m e n ts o n th e d ra ft p e rm it, th e R e g i o n im p ro p e rly pa r a phr a s e d o ri nc o m pl e t e l ys um m a r i zed the i rc o m m e nt s o rthe co m m en ts o f o th ers. S ee S im p son P et
. at7- 8 ; S tr and P et
. at1. T h ey im p lyth at th is a c ti o n , b yit se lf, su p p li es a b as is for rem an d in g S ierra P a c ific ’ s p e rm it. T h e law is to th e c o n tra ry. P e rm it iss u e r s a r e r e q u ire d to “[b] r i e f l yde s c r i be a nd r e s po nd t o a l l s i g ni f i c a ntc o m m e nt s ” s ubm i t t ed d u r i n g th e pu b l i c c om m ent peri od , i n cl u d in g atany pu b l i c hear i n g. 4 0 C .F .R . § 1 2 4 .1 7 (a)(2 ). I n fu lfi ll in g th is ob li g ation , p erm itissu ers a re n o t re q u ire d to re sp o n d o n a n i n d i v i d u a liz e d b a sis to e a c h d isc re te c o m m e nts ubm i t t e d bymembe r s o f the publ i c , i n the s a m e l e ng th a nd lev el of d etail as th e c o m m en t its e lf
. S ee , e . g. , I n r e W a sh. A q u edu ct W a t er S u p p l y S ys. , 1 1 E .A .D
. 5 6 5 , 5 8 7 (E A B 2 0 0 4 ); I n r e Hi l lm an Pow e rC o. , 1 0 E .A .D . 6 7 3 , 6 9 5 -9 7 & n .2 0 (E A B 2 0 0 2 ); Kn a u f I, 8 E .A .D
. at1 3 4
- 4 2
. I n st ead , p erm i ti ssu ers are al l ow ed t o p arap h rase o rs um m a r i z e publ i c c o m m e nt s , g r o up s i m i l a rc o m m e nt s t o g e the r , a nd p ro v id e u n ifi ed resp o n se s th ere to. S ee , e . g. , I n re E n vt l

. D isp . S

ys ., I n c. , 1 2 E .A .D
. 2 5 4 , 2 8 6
- 8 7 ( E A B 2 0 0 5 ) (co m b i n at i on an d p arap h rase of pu b l i c c om m ent s i s acc ept abl e w h er e per m i ti ss u er ’s r es p on se s “g i v e ‘ tho ug ht f

ul a nd f ul l c o ns i de r a t i on ’ t o p ubl i c c o m m e nt s * * * a nd ar e ‘c l earand th or ou gh enou gh t o adeq u at el yencom p as s the i ss u es r ai se d ’” ( q u ot i n g R o ckG en , 8 E. A
. D
. at 5 57, a nd W a sh. A q u edu ct , 1 1 E .A .D . at 5 8 5 )).SI ERR A PAC I FI C I N D U STRI ES 53 A c c o rd in g ly, in a c a se w h e re , a s h e re , p e titio n e rs c la im th a t a p erm i ti ss u erparap h r as ed or sum m ari ze d a p u b l i c c om m ent , s u ch c l a i m s a r e no t , bythe m se l ves , su f f i c i e ntt o tr i g g e ra r e m a nd. I f , by m a k i n g th i s k i n d o f c l a i m, th e p e t i t i o n e r s i n t e n d t o q u e s t i o n t he ad eq u acyof

th e per m i ti ss u er ’s r es p on se t o com m ent s, th e pet i t i o n ers m us t e xpl a i n wha t t he pe r m i t i ss u er o v e r l o o k e d, o m i t t e d, m i sun de r s t o o d, o ro the r wi s e di d wr o ng i n i t s r e s po ns e , a s r e qui r e d by th e p erm itti n g reg u lati o n s. S ee 4 0 C
. F
. R
. § 1 2 4
. 1 9 ( a) ( 4 )
. O th erw i se , th e m ere fac t th at a p erm itissu er d id n o t f u ll yq u o te a p arty ’ s en ti re c o m m e n t d o e s n o t, b y it se lf, in d ic a te th a t th e p e rm it iss u e r f a ile d to resp o n d ad eq u atelyto th at co m m en t. E. g. , E n vt l . D isp . S ys. , 1 2 E .A .D . a t 2 8 6 -8 7 ; Hi l lm an , 1 0 E .A .D
. at6 9 6
- 9 7 & n .20
. B ecau se n eith er M r. S im p so n n o r M s. S tran d p ro v id ed m o re th an a b are a s se r t i o n o f

i m pr o pe rpa r a phr a s e , the B o a r d de ni e s r e v i e w of the p et i t i on s on th i s b asi s. 2. T h e R e g io n D i dN

o tC l ea rl y E rr or A b u se I

t s D iscret i o n in Ex c lu d in g Imp ro

p e rly S u b m itte dP u b lic C o m m e n ts M s . D r ai s ne ra r g ue s tha tthe R e g i o n e r r e d byf a i l i ng t o i nc l ude h e r c o m m e n ts in th e a d m in ist r a t iv e re c o rd fo r S ie rra P a c ific ’ s p e rm it d e c isio n . S h e is in c o rre c t. T h e p u b lic n o tic e d o c u m e n ts c le a rly i n stru ct ed i n t er es t ed p ar t i es t o s end w r it ten c om m ent s t o M r . O m er S h al ev at on e of tw o p ossi b l e ad d ress es: ( 1 ) th e R egion ’s ai r p erm i ts e le c tro n ic m a il ad d re ss a t R 9 ai rp erm it s@ epa. gov ; or( 2 ) th e R egi on ’s p h y si cal o ffi ce on 75 H aw th or n e Str eeti n S an F r anci sc o, C al i f or n i a. S ee A A Q I R at 4 6 -4 7 ; R e g io n 9 , U .S . E P A , P u b l i c N o t i ce o f P rop o se d P e rm it Mo d ific a tio n a n dR e q u e st fo r P u b l ic C o m m e n t, S ie rr a P a c ific I ndus tr i e s – Ande rs on D i v is i on 2 ( Se pt
. 2012)
. I ns t e ad of c o m pl y i ng w ith th e se c le a r in str u c tio n s, M s. D ra isn e r se n t h e r c o m m e n ts to M r. S h ale v ’ s p erso n al E P A elec tron ic m ail acc o u n t. S ee Let t erf r om D eb o rah J o rd an , D ir. , A ir D iv., E P A R eg . 9 , t o C eles te D raisn er 1 (M ar. 1 6 , 2 0 1 3 ) (“ J o rd an L etter”). T h e R egi on exp l ai n s th ati thas a l on g- st and i n g prac t i ce of u sin g a d i stin c t ele c tro n ic m a il ac c o u n t fo r re c e iv in g p u b lic c o m m e n ts o n o f f i c i a l PSD pe r m i t t i ng a c t i o ns , pr e c i s e l ys o tha ti tc a n a v o i d the si tu at i on th atar ose here – i
. e. , com m en ts th ats h ou l d have been partof the A g e nc y ’ s de c i s i o nm a k i ng pr o c e s s a r e o v e r l o o k e d a m i ds ttheSI ERR A PAC I FI C I N D U STRI ES 54 d ozens of

un r el at ed el ectr on i c m ai l s an i n d i vi d u al E P A em p l oy ee m ig h t re c e iv e o n a n y giv e n d a y. R e g . 9 R e sp . a t 1 5 . S u c h a p r a c t i c e is ent i r el yr eas on abl e, and th e R egi on has no d u tyt o ac ceptm i sd irect ed co m m en ts fr o m an yp arty
. S ee 4 0 C. F. R. §§ 1 2 4
. 1 0 ( d ) , . 1 1 , . 1 3
. To f i n d oth erw i se w ou l d un d erm i n e th e s m ooth and t i m el yproce ss i n g of p e rm it ap p lic a tio n s a n d in j e c t n e e d le ss c o n fu sio n a n d u n c e r t a in ty i n to th e p u b l i c com m en tan d r esp on se p rocess. T h e R egi on ac tu al l yw ent t o ext r a l engt h s in th i s cas e t o tr ack d o w n M s. D raisn er’ s co m m en ts a n d p r o v id e a p u b li c re sp o n se . S ee J o rd a n L e t t e r a t 1 & e n c l. I n so d o in g , th e R e g io n a p p ro p ria te ly d id n o t in c lu d e i t s r e sp o n se in th e a d m in istr a tiv e re c o rd , sin c e th e p e rm it d eci si on w as not b ased on th ose com m ent s. I n st ead, th e R egi on c a te g o ri z e d th e c o m m e n ts a n d A g e n c y res p o n se in th e p u b lic p e rm it r e c o r d a s “Po s t - Fi na l D e c i s i o n M a t e r i a l N o t I nc l ude d i n t he A d m i n i str at i ve R ecor d
. ” S ee ht tp : //ww w. r e g ul a t i o ns . g o v / #! do c um e nt D et ai l ; D =E P A
- R 0 9
- O A R
- 2 0 1 2
- 0 6 3 4
- 0 0 1 4
. T h e B oar d den i es r evi ew of th e pet i t i on on t h i s i ss u e. 3. T h e R eg io n D idN

o t C le a rly E rr o r A b u s e Its D isc re tio n in C a t eg o ri zi n g S i erra P a ci

f i c’s P rop o se dB o i l er a s a “Maj orModi

f i c at i on” R athe rThan as a “Maj or S ta t i o n a ry So u rc e” M s . St r a nd s ug g e s t s tha t the R e g i o n e r r e d byca t eg o r i z i ng S i er r a Pa c i f

i c ’ s pr o po s e d f

a c i l i tya s a ne w “m a

j o rmodi f

i c a t i o n” r a t h er th an as a n ew “ m aj o r stati o n ary sou rce ” o f air p o ll u ti o n . S ee St r a nd P e t
. a t 1 (c itin g c o m m u n ity’s “ g re a t co n fu sio n ” o n th is q u e stio n ); se e a lso Le t t e rf

r o m K e v i n P. B undy , Se ni o rA t t ’ y , C B D , t o O m a rSha l e v, EP A R e g . 9, at1 0 ( O c t
. 17, 2012) ( “CB D C o m m e nt s ” ) ; R TC a t34. S h e im p lie s th a t t h e R e g io n ’ s d e c isio n to c a te g o riz e th e fa c ility in th is w ayr es u l t ed i n S i err a Paci f i c r ece i vi n g a l es s rigo rou s, l es s p r ot ect i ve ai rem i ss i on s p erm i tth an ot h erw i se w ou l d have been th e c as e. Se c t i o n 1 6 5 ( a ) o f

th e CAA p r o v i d e s th a t“ [ n ] o ma j o re mi t t i ng f a c i l i ty * * * ma y b e c o n s tru c t e d i n a n y a r e a ” s u bj e c t t o t he PSD p ro g ra m u n le ss th e p ro p o se d fa c ility fi r s t u n d e rg o e s a n a ir q u a lity re v ie w p ro c e ss a n d o b ta in s a P S D p e rm it t h a t im p o se s lim its o n a ir p o l l u t i o n e mi s s i o ns f

r o m th e f

a c i l i ty . C AA § 1 6 5 ( a ) ( 1 ) , 4 2 U. S
. C.SI ERR A PAC I FI C I N D U STRI ES 55 § 7 4 7 5 ( a) ( 1 )
. B oth new “m aj ors t at i on arys ou r ces ” a n d new “m aj or m o di f i c a t i o ns ” of such s o ur c e s c a n qua l i f ya s “ma

j o re m i t t i ng f aci l i t i es . ” S ee C A A § 1 6 9 ( 1 ) , 42 U
. S
. C
. § 7 4 7 9 (1 ) (def i n i t i on of “m aj orem i t t i n g f

aci l i ty ”) ; 4 0 C .F
. R
. § 5 2
. 2 1 ( b ) ( 1 ) ( i ) ( d ef i n i t i on of “m aj or st at i on ary sour ce” ) ; 4 0 C
. F
. R
. § 5 2
. 2 1 ( b ) ( 1 ) ( i ) ( d ef i n i t i o n of
“ m aj o r m o d ifi ca ti o n ”). A c c o rd in g ly, b o th typ e s o f s o u rc e s m u st e m p lo y B A C T to m in im iz e e m iss io n s o f re g u la te d p o llu ta n ts, c o n d u c t so u rc e im p a c ts and ai r q u al i ty anal y se s, and com p l y w i th oth er p r econstru ct ion revi ew req u irem en ts. S ee CAA § 1 6 5 , 4 2 U. S
. C. § 7 4 7 5 ; 4 0 C. F
. R. § 5 2 .21 (a) (2 ), (

j), ( k), ( m ); s e e al

s o N MU , s l i p o p . a t8 , 1 4 E
. A. D. a t___ ( ho l di ng tha ta pr o po s e d ne w boi l e ra tan exi s t i ng he a t i ng pl a nt w as a “m aj orm o d ifi ca t i on ” th atw ou l d r es u l ti n “a s i gn i f i cantnet in cre as e” of c ertain air co n ta m in a n ts an d th u s req u ired a P S D p erm it ); I n r e D e s e r e tPow e rEl ec. C oop. , PSD A ppe a l N o . 07- 03, s l i p o p. a t 1 0 , 1 2 (E A B N o v . 1 3 , 2 0 0 8 ) , 1 4 E .A .D . _

_ _ (h o ld in g th a t a p r o po s e d ne w w a s t e - c o a l c o m bus t i o n uni tqua l i f i e d a s a “m aj or m od i f i cat i on ” of

an e x ist ing m aj ors t at i on arys ou r ce and as s u ch req u ired a P S D p erm it ). M s. S tra n d d id n o t p ro v id e a n y sp e c ific le g a l re a so n s to ex p l a in w h y th e ch osen cat ego ri zati on i s erron eou s or oth erw i se p r ob l em atic. S ee S tr and P et
. at1- 2
. M s. S tr and s i m i l ar l ydid n ot i de nt i f ya nys pe c i f

i c di f f e r e nc e s i n o ut c o m e t h at r e s ul t e d f r o m the alleg ed lyerro n eo u s ca teg o r iz ation
. S e e id
. B eca u se M s. S tr and ’s ar gu m ent s on th i s t op i c l ack suf f i ci ent s p ec ifi ci ty , th e B oar d den i es rev iew of th e p e ti ti o n o n th is i ssu e. S ee Kn a u f I I, 9 E .A .D . a t 5 -6 ( d eny i n g p ro se p etit ion s for lac k of su ffi cien t sp ec ifi city ). 4. T h e R eg i o n D i d No t C l ea rl y E rr o r A b u se It

s D iscretio n in I t s T re a tm entof F i n e P a rt i cul a t e Ma t t erE m iss i o n s I ss u es M r . S im p so n a rg u e s th a t th e R e g io n e rre d in e v a lu a tin g th e a ir 2.5 q u al i tyi m p act s of

f i n e par t icu l at e m att er( “P M ”) em i ss i on s f r om S i err a Paci f

i c’s propose d fa ci l i ty . H e c l ai m s th e R egi on : ( 1 ) l acke d aut h or i tyt o w ai ve a pu rp or t ed “ on - si t e m o n it or i n g r equ i r em ent ” f or 2.5 2.5 P M ; ( 2 ) u s e d a “ S i g n i f i c a n t I mp a c t L e v e l ” ( “ S I L ” ) f o r PM 2.5 a v e ra g e d o n a n a n n u a l b a sis (“ P M (a n n u a l)” ) to d e te rm in e th a t aSI ERR A PAC I FI C I N D U STRI ES 56

EPA

his tori cally

has use d SI L s and SMC s to he lp determinew het her f ac ility 34 emission s aresignif

icant enou gh to trigger various P SD req u i r ements. A SIL is a numericvalue , m ea sured in mic rogra m s per cubicm eter

(“ μ g/m ”) , that

repre sentsthe 3 lev elof am bient im pac t be low

w hic h theEP A

consi der s a sourceto hav e an ins ignif ic ant ef f ec t on am bient air qualit y . See7 2 F ed
. Re g. 5 4 , 1 1 2 , 5 4 , 1 3 8
- 3 9 (S ep t
. 2 1 , 2 0 0 7 )
. An SMC isan “ ‘air qual ity

c oncentra

tion de minim islev el [] for ea ch pollutant

* * * f or t he purpo se of

provid ing a possible exem ptio n from

mon itori ng requirements.’” Id . at 54, 141 (quoting45 Fe d. Reg . 52,676, 52,707 (A ug . 7, 1980))
. 2.5 cum u l at i ve a i rqu al i tyi m p act s an aly si s f orP M ( ann u al ) w as not n e c e ss a ry; an d (3 ) re lie d o n o u td a te d o r i n a p p lic a b le a ir q u a lity 2.5 m o de l i ng pr o g r a m s to a na l y z e PM i m pa c t s . Si m ps o n Pe t
. a t1- 3. N o ne o f the s e a r g um e nt s wer e r a i s e d i n the publ i c c o m m e ntper i o d, b u tM r . S i m p son cl ai m s th eyw er e not“re as on abl yas cert ain abl e” at th a t ti m e a n d th e re fo re m a y p ro p e rly b e ra ise d fo r th e firs t tim e in th is ap p ea l. S e e id
. a t1- 2.

2.5 M r . Si mps on p o i nt s o uttha tthe Re g i o n a ug me nt e d i t s PM a n a lysis a fte r th e c lo se o f p u b lic c o m m e n t in th is c a se , to e n s u r e its pe r m i tdeci s i o n a c c o r de d wi th a J a nua r y2013 rul i ng i n S i er ra C l u b v. EPA , 7 0 5 F .3 d 4 5 8 (D .C . C ir. 2 0 1 3 ). S ee S i m p s o n P e t
. a t1
- 2 ; RTC a t3- 5. I n tha trul i ng , the U ni t e d St a t e s C o ur to f A p p eal s f

o rthe D i s tr i c to f

C o l um bi a C i r c ui t( “D
. C
. C i r c ui t ” o r“Court ” ) v a c a t e d a nd 2.5 rem an d ed f

i n al P S D r egu l at i on s th atgov ern ed th e u se of P M S IL s. 7 0 5 F
. 3 d at46 3
- 6 6
. T h e co u rt al so vaca t ed P S D r egul at i on s th at 2.5 e s t a bl i s he d a PM “Si g ni f i c a n t M o n i t o r i ng C o nc e nt r a t i o n” (“ S M C ”). Id
. a t466- 69.

34

2.5 a. The Regi on D i d N otW ai v e the PM Moni t or i ng R equ i re m ents, as Mr. Sim p son A l l eges M r . S im p son ci t es th e Si e r r a C l ub d e c isio n to su p p o rt h is a r g um e nttha tthe R e g i on la c k e d a utho r i tyt o wa i v e the moni t o r i ng 2.5 r e q u irem en ts for P M em ission s. S ee S i m p son P et
. at2
- 3
. T h is a r g um e ntf

a i l s be c a us e the R e g i o n di d no t , i n fa c t , wa i v e the req u irem en ts. I n stea d , i n ke ep in g w ith th e P S D reg u latio n s , S ierra 2.5 Pa c i f i c s ubm i t t e d a m bi e nt PM m o ni t o r i ng da t a c o l l e c t ed i n 2011 fro m a sta tio n a t th e R e d d in g D e p a rtm e n t o f H e a lth , a p p ro x im a te ly 6 .5 m il es to th e n o rth ea st of th e p ro p o s e d p r oje ct sit e. S ee A A Q IRSI ERR A PAC I FI C I N D U STRI ES 57

In add itio n, in striking do w n the SIL s them selve s, the D.C. Circuit d eclined 35 to rule on the deeper ques tion w het her EPA pos se ss esa

uthority to prom ulg ate SIL s in t

he f irs t instanc e. The cour

t e xpli citly

s tate d that t

hat le g alque stion was“not pr udentially ripe ” and there f

orewasre serv ed f

or a nother da y . Sierr a Club , 705 F .3d at 464. a t 2 8 & tb l.8 .2 -1 ; see a l so 4 0 C .F .R . § § 5 1 .1 6 6 (m )(1 )(i ), (i i), (i v ), 52. 21( m ) ( 1) ( i ) , ( i i ) , ( i v )
. A s the B o a r d e xpl a i ne d i n N MU , “ E P A has l on g i m p l em ent ed t h e PS D progr am pu r suan tt o th e un d er st and i n g th at rep rese n tati v e d ata m ay b e su b sti tu ted [for o n - sit e d ata] w h ere ci r cum st ances w arr ant , * * * and th e B oar d and i t s p r edeces sor s h ave l o ng uphe l d the A g e nc y ’ s g ui da nc e t o tha te f f e c t
. ” S l i p op. a t62, 1 4 E .A .D . at _

_ _ (c it in g A g en cy gu id an ce d o cu m en ts). T h e B o ard d eni es r evi ew of

th e pet i t i on on t h i s i ss u e. b. T h e R egi o n D i dN

o tSo l el y R el y on th e N

o w -V a ca t ed 2.5 SI L f orPM (

Annual ) Em is s i ons as a B a sis f or Exc us i ng the C um ul a t i ve I mpac t s Anal y s is f orThat P o l l u ta n t

, as Mr. Sim

p son A l l eges M r . S i m p son al so ci t es th e Si e r r a C l ub d e c i sio n to su p p o rt h is a rg u m e n t th a t th e R e g io n e rro n e o u sly re lie d o n a S IL ( n o w v a c a te d ) to avoi d anal y zin g th e c u m u l at i ve i m p act s of S i err a Paci f

i c’s proj ect ed 2.5 P M (a n n u a l) e m iss io n s. S im p so n P e t. a t 1 -2 . T h i s a rg u m e n t fa ils 2.5 b ecau se i n ex cu si n g the P M ( an n u al ) cu m u l at i ve im p acts an al y si s, th e A gency d i d n ot m er el y com p ar e S i err a P aci f i c’s p r ojected ave r age 2.5 a nnua l PM e m i s s i o ns t o the r e l e v a ntSI L. 35 I n st ea d , i n l i gh tof

th e Si e r r a C l ub deci si on , th e R egi on 2.5 c a r e f ul l ye xa m i ne d the a m bi e nta i rc o nc e ntr a t i o n o f PM a nd 2.5 concl u d ed t h atboth th e backgr ou n d P M lev els and S i err a Paci f i c’s 2.5 2.5 pr oj e c t e d P M e mi s s i o ns we r e s uf f i c i e nt l yl o w tha tne i the rthe PM ( a nnua l ) N A A Q S no rPSD incr em e ntwa s i n a nyda ng e ro f be i ng exceeded
. S ee R T C at4 (observi n g th at“[t ] h e A A Q I R and f u r th er an al y si s i n cl u d ed h ere s h ow th atth e P rojectd oes notpr e s e ntthe type o f s i tua t i o n i n whi c h e xi s t i ng a i rqua l i tyi n the a f f e ct ed a r e a i s a l r e a dy cl ose t o th e N A A Q S orP S D i n crem en t, such th ata sour ce w i th an 2.5 im p a c t b e lo w th e P M S IL s c o u ld n e v e rth e le ss c a u se o r c o n trib u te toSI ERR A PAC I FI C I N D U STRI ES 58

2.5 a v iolation of th e P M N A A Q S or in cre m en t”) (em p h as is ad d ed ). T h er ef or e, th e B oar d den i es r evi ew of th e pet i t i on on t h i s i ss u e.
c. Mr. Sim

p son D i dN

o tP re se rv e f

o r R evi ew I

ss u es Relat e d t o t he Regi on’s U s e of AERM O D and C A L P UF FMo d e l i n g P r o g r a ms Fi na l l y , M r . Si m ps o n a r g ue s tha tthe R e g i o n e r r e d byr e l y i ng o n a n “a nt i qua t e d” v e r s i o n o f “A ER M O D , ” an ai r qual i tymode l i ng p r ogr am used t o as se ss i m p act s w i th i n f i f tyki l om et er s of

a p r op ose d sta tio n a ry so u rc e . S im p so n P e t. a t 2 ; se e 4 0 C .F .R . p t. 5 1 , ap p . W , § 4. 2. 2. b. H e a r g ue s f ur the r tha t the R e g i o n a l s o e r r e d by r el y i n g on “ C A L P U F F ,” an oth er a ir q u al i tym od el i n g p rogram u sed t o assess i m p act s at gr eat er d i st ances ( i
. e. , f i f ty t o 3 0 0 ki l om et er s)
. S im p son P e t. a t 2 -3 ; se e 40 C
. F
. R
. pt. 5 1 , a p p . W , §§ 6.1, 6
. 2
. 3
. M r . S i m p son do e s not ci t e t o a ny thi ng ne w i n Si e r r a C l ub i n s o ar gu i n g because th at d ecis i on d oes n ot add ress q u est i on s of ap p ro p ria t e u se of th ese m od el s. I ns t e a d, he r e f

e r e nc e s Si e r r a Pa c i f

i c ’ s 2010 p er m i ta ppl i c a t i o n a nd M ay 2 0 1 2 ai r q u al i ty m od el i n g corr esp on d en ce. B oth o f t h ese d o c u m e n ts w e r e a v a ila b le fo r re v ie w d u rin g th e o rig in a l p u b lic c o m m e n t p e rio d ; th u s, u n d e r th e p e rm ittin g re g u la tio n s, a rg u m e n ts pe r t a i n i ng t o the m we r e r e a s o na bl ya s c e r t a i na bl e a ttha tt i m e a nd sh o u ld h av e b ee n raised th en . S ee 4 0 C .F .R . § § 1 2 4 .1 3 , .1 9 (a). A c c o r d in g ly, th e B o ard d en ies rev iew of th e p etit ion on th is i ssu e. S ee I n r e Chr is t i an Cnt

y . Ge ne r at i on , LLC , 1 3 E
. A. D. 4 4 9 , 4 5 9 ( E AB 2 0 08) ( “The r e g ul a t o r yr e qui r e m e nttha ta pe t i t i o ne rmus tr a i s e i s s ues d u rin g th e p u b lic c o m m e n t p e rio d ‘ is n o t an a rb itra ry h u rd le , p la c e d in th e p ath of

pote n t i al pet i t i on er s si m p l yt o m ake th e proc es s of r evi ew m o r e di f f i c ul t ; r a the r , i ts e r v e s a n i m po r t a ntf unc t i o n r e l a t e d t o the e f f i c i e nc ya nd i nt e g r i tyo f the o v e r a l l a dm i ni s tr a t i v e s c hem e. ” ( quo t i ng I n r e BP C he r r

y Poi nt , 1 2 E .A .D . 2 0 9 , 2 1 9 (E A B 2 0 0 5 ))).SI ERR A PAC I FI C I N D U STRI ES 59 5. T h e R eg io n D idN

o t C l e a r l y E r r o r A b u se Its D isc re tio n in D e t e r m i ni ng Thatth e A ddi t i on of a SolarEner

gy C ompone ntorthe Al t e r at i on of th e 9 0% Bi om as s - 10% N a t u ralG a s F u el

M i x W o u ld“ R edef

i n e th e So u rc e” T o es t abl i sh app r op r i at e a i rpoll u t i on em i ss i on s l i m i t s th r ou gh B A C T anal y se s, perm i ti ss u er s r ou t i n el yconsi d er th e c apab i l i t i es of
“ in h e re n tly lo w e r p o llu tin g ” p ro c e ss e s o r p ra c tic e s a n d “ a d d -o n ” a ir p ol l u t i on cont r ol t echn ol ogi es th atar e a vai l abl e f oruse a tth e propose d fac il ity . S ee Of

f i c e o f Ai rQu a l i tyP l a n n i n g & S t a n d a r d s , U. S
. E P A, New S o ur c e Rev i e w W ork s hop Manual B .10 (d raf t O ct
. 1 9 9 0 ). A s a g en era l m atter , h o w ev er, A g en cy p o li cy p ro v id es th at p erm itissu ers n ee d n o t con sid er te c h n o log yaltern ative s th at w o u ld req u ire
“ r e d e f in in g th e d e s ig n ” o f

th e s o u r c e (o r , a s s h o r th a n d te r m in o lo g y, “ red efin in g th e so u rce ”), as p ro p o se d b yth e p e r m itap p li ca n t. S e e id
. a t B .1 3 ; Kn a u

f I I, 8 E. A
. D
. a t136. T h e B oar d has devel op ed a bod yof ca se l aw on t h e c on ceptof “r e de f i ni ng the s o u r c e , ” whi c h c o nt a i ns de t a i l e d e xpl a na t i o ns o f the h ist o ry , b as is , an d fu n ction in g of th e p o li cy. S ee , e . g. , I n r e C i t y of P a lm d a le , PSD A ppe a l N o . 11- 07, s l i p op. a t34- 52 ( EA B Se pt
. 17, 2 0 1 2 ), 1 5 E .A .D . _

_ _ , a p p e a ld o c ke t e d s ub nom

. S i mps o n v . EPA , N o . 1 2 -7 4 1 2 4 (9 th C ir. D e c . 1 8 , 2 0 1 2 ); I n r e D e s e r tRock

Ener gy C o. , P S D A p pe a l N o s . 08- 03 t o - 06, s l i p o p. a t56- 65 ( EA B Se pt
. 24, 2 0 0 9 ), 1 4 E .A .D . _

_ _ ; N MU , slip o p . a t 2 6 -2 8 , 1 4 E .A .D . a t _

_ _ ; In re Pr a i r i e S ta t e Ge n e r a t i n g Co. , 1 3 E .A .D . 1 , 1 4
- 3 4 (E A B 2 0 0 6 ), a ff’d s u b n o m. S i e r r a Cl u b v . EPA , 4 9 9 F .3 d 6 5 3 (7 th C ir. 2 0 0 7 ). In a n u tsh e ll, th e se c a se s in d ic a te th a t p e rm it iss u e rs sh o u ld be g i n the i r an al y s e s o f po t e nt i a l l ya v a i l a bl e c o ntr o l t e c hno l o g i e s by exam i n i n g how th e per m i tap p li ca n tdefi n es th e propose d f aci l i ty ’s
“ p u rp ose” or “ b asi c d esi gn ,” w h i ch typ i call y i s set forth i n th e p e rm it ap p li ca ti o n an d r e lated d o cu m en ts. S ee , e . g. , P a lm d a le , s l i p o p. a t43, 4 5 , 1 5 E .A .D . a t _

_ _ ; D es er tR o ck , s l i p o p . a t 6 4 , 6 6
- 6 7 , 1 4 E. A. D. a t _

_ _ ; P ra i r i e S t a te , 13 E
. A
. D
. at21
- 2 3
. T h e per m i ti ss u erth en t akes a “ha r d l o o k ” a twhi c h de s i g n e l e m e nt s a r e “i nhe r e nt ” t o the a ppl i c a nt ’ s purpo s e a nd whi c h de si gn el e m e nt s c o ul d po s s i bl ybe a l t e r e d t o a c hi e v e po l l ut a nte m i s s i o ns r e duc t i o ns wi tho utdi s rupt i ng th e a p p li ca n t’s “ b as ic b u sin es s p u rp o se ” fo r th e p ro p o se d f ac il ity . S ee ,SI ERR A PAC I FI C I N D U STRI ES 60

e . g. , D es er tR o ck , sli p o p . a t 6 4 , 6 9 , 1 4 E .A .D . a t _

_ _ ; N MU , s l i p o p. a t 2 6 -2 8 , 1 4 E .A .D . a t _

_ _ ; P ra irie S ta te , 1 3 E .A .D . a t 2 7 ; K n a u f I, 8 E .A .D
. at 1 3 6
- 4 4
. I n t akin g th i s h ard l oo k, th e p erm i t i ssu e r m u st ensu r e th atth e propose d f aci l i ty ’s d es i gn has been “ d er i ved for r eas on s i n d ep end ent of ai rqu al i typerm i t t i n g. ” P a lm d a le , s l i p o p. at43 , 15 E
. A
. D
. at__ _ ( ci t i n g ca se s)
. F i n al l y , th e per m i ti ss u erhas d i s c r e t i o n u n d e rs e c t i o n 1 6 5 ( a ) ( 2 ) o f th e CAA, 4 2 U. S
. C. § 7 4 7 5 (a)(2 ), t o co n sid er “ altern ative s” to t h e p ro p o se d fac il ity . S ee , e . g. , D es er tR o ck , slip o p . a t 5 6 , 6 8 -7 2 , 1 4 E .A .D . a t _

_ _ ; P ra irie S ta te , 13 E. A
. D
. a t28- 34. I n th e pre se n tca se , M r . S i m p son ar gu es th atth e R egi on p r ovi d ed an i n adeq u at e r es p on se , un sup p or ted b yth e a d m i n i str at i ve r e c o r d, t o hi s com m e nts ug g e s t i ng tha ta s o l a re ne r g yc o m po ne ntbe c o ns i de r e d i n the B A C T ana l y s e s f o rthe pr o po s e d f

a c i l i ty . Si m p son Pe t
. a t5- 7. M r . Si m ps on h ad c o m m e nt e d tha t“[ a ] s o l a rc o m po ne nt woul d r e duc e a l l e m i s s i o ns bypr e he a t i ng the s y s t e m o ra ug m e nt i ng th e el ectr i cal ou tp u t
. S ol ar ener gy i s an i n h er ent l y l o w er e m i t t i n g, add

- on cont r ol t ech n o l ogy . ” S i m p son C om m ent s at2. M r . S i m p son a l s o a r g ue s on ap p eal tha tthe R e g i o n e r r e d byf a i l i ng t o i nc l ude i n the B A C T ana l y s e s di f

f e r e ntv a r i a t i on s o f

the pe r m i t t e d f

ue l mi x ( 10% n a tu ra l gas, 9 0 % b i om ass)
. S i m p son P et
. at 7
- 1 0
. H e st at es i n h is com m ent s th ati n cr eas ed gas u se w ou l d r ai se th e t ot al com b u sti on t e m pe r a tur e , pr o duc e mor e c o m pl e t e c o m bus t i o n, a nd r edu ce e m i s s i o ns , r e s ul t i ng i n a c l e a ne rf a c i l i ty . Si m ps o n C o m m e nt s a t1. I n de c l i ni ng t o c o ns i de rs o l a re ne r g yi n i t s B A C T an al y si s , the R egion r esp on d ed as f

oll ow s: A s ol a r c om ponent f or thi s P r oj e c t pr e s e n t s a si gn i f i cantdep artu r e f

r om th e e x i st in g f

aci l i ty ’s o pe r a t i o ns a nd the Pr oj e c t ’ s purpo s e . I n thi s i nst ance, th e e x istin g lu m b e r fa c ility w ill a d d e q u ip m e n t w ith in i t s ex i st i n g p h y si cal footpri n tan d u t i l i ze th e ex cess b i om as s atth i s and oth erS i err a Pa cific s aw m i l l or l u m b er op erat i on s. RT C a t1 3
. T h e Re g i o n s i mi l a r l yd e c l i n e d t o a u g me n tth e BAC T anal y se s b yi n ves t i g atin g d i f f er ent f u el m i x proport i on s, cl ai m i n g th atSI ERR A PAC I FI C I N D U STRI ES 61 i t w as “unc l e a rwha tmi x the c o m m e nt e ri s ul t i m a t e l yr e c o m m e ndi ng and w h er e th i s shou l d be i n corp o r at ed i n t o th e a n al y si s. ” Id
. The R e gi on furthe re xpl a i ne d tha t“[ a ] c c o r di ng t o Si e r r a Pa c i f i c ’ s 2010 A p p li ca ti o n , S ierra P ac ifi c in ten d s to u se b iom as s from ex ist in g S ierra P aci f i c f aci l i t i es , as w el l as i n - f or es tm at er ial s and var i ou s sour ces of a g r i c ul t u r a l a nd urba n woo d wa s t e . The r e f o r e , a n i nhe r e ntas p ectof th e proj ecti s th ati t s fu el use be pri m ar i l ybiom as s. ” Id . (e m p h a sis ad d ed ). The B o a r d f

i n d s n o b a s i s f

o ra r e ma n d o n th e s e i s s u e s . The B o ard ’s r evi ew of

th e r ecor d as a w h ol e m akes cl earth atS i erra Paci f i c’s “purpo s e ” i n pr o po s i ng thi s pr oj e c ti s t o putt o us e the h u n d r eds of

th ou sa n d s o f b on e- d r yt on s of w ood w as t e th e l u m b er com p a nyha s i n the Sha s t a C o untyr e g i o n, f o rthe pr o duc t i o n of lu m b er a n d elec tri city
. S ee , e . g. , E N V I R O N I n t’l C o r p ., B i o m a ssF ire dC o g e n e ra tio n P ro je c t A u t h o rity to C o n str u c t a n d[ P S D ] P e rm it Ap p l i c a tio n fo r S ie rr a P a c ific In d u str ie s-A n d e rs o n Fa c ility 3 -4 (M ar. 2 0 1 0 ) (A R I .01 ) (“P erm i tA p p l .”) ; A A Q I R at3
- 4
. T h ese p ro d u c tiv e u se s o f w a ste b io m a s s a r e t h e c o re o f th e p ro p o se d p roj e c t; th u s , t h e “ i n h e re n t as p e c t” id e n tifie d b y th e R e g io n in th e re sp o n se to c o m m e nt s a s the burni ng o f bi o m as s i s r e a s o na bl e a nd s uppo r t e d by th e re c o rd . I n d ee d , th e re co rd estab li sh es th at S ierra P ac ifi c h as m o re surp l u s b i om as s ati t s var i ou s f aci l i t i es th an i t s p r op ose d A n d er son b oi l erca n con su m e on an ann u al basi s. S p eci f i cal l y , th e R egi on ’s A A Q I R st at es: C u r r ent l y , th e A n d er so n lum b eropera t i on produ ces ap p ro x im ately1 6 0 ,0 0 0 B D T of w o o d w a ste p er year. A ppr o x i m a t e l y60, 000 B D T ar e c o ns um e d bythe e x istin g c o g e n e ra tio n u n it, 2 0 ,0 0 0 B D T a re tru c k e d to o th e r b io m a ss p o w e r p la n ts, a n d th e ro u g h ly 8 0 , 0 0 0 B D T b alan ce i s tru cked t o oth erm arket s ( e. g. w ood chi p s t o pu l p m i l l s)
. T h e n ew proposed b oi l er w i l l have th e c apaci tyt o consum e a m ax i m um of 2 1 9 ,0 0 0 B D T

p erye a r. R o ug hl y80, 000 B D T w i l l be g e ne r a t e d bythe f

a c i l i ty ’ s e xi s t i ng l u m be ro pe r a t i o ns a t its c u rre n t o u tp u t, [a n d ] a d d itio n a l w o o d fu e l w ill b e tr a n s p o r te d b y t r u c k to th e fa c il it y f ro m [S i erra Paci f i c ’s ] othe rl um be rope r at i ons i n C al i f or ni a.SI ERR A PAC I FI C I N D U STRI ES 62

The B o ardno te s th atinit s res p o n ses to co m ments , th e R egi o ngave 36 somew hat dif f erent re spons esa s to t

he bas ic“purpos e”of th e f ac ility
. Compa re , e. g. , RT C a t 13 (s tatingth ata

s ola r c om ponent “pre sentsa

s ignif ic ant depar ture ” f rom the pro ject’s “purp ose,” and notin g that “ an inh erent aspect of the pro ject is that its f

uel use be primarily

biomas s” ) wi th id
. at 2 4 (explainin g th at Sierra Pacif ic’s “bu siness purp ose in c onst ructi n g t he new

boil er istwo-f old: to [prov ide ] proc es s st ea m f or itsmill operationsand to providea renew abl e e nergy sourc e of gri d pow er”)
. The Re g ion s hould take ca rein thef

utureto ensuretha

t itss tatement s re g ardinga pr o je ct ’s“purpos e”or “ba sic d esi gn ” are cl ea

r a nd pre ci se , s o a s to a

v oid mis under standing s of thekind presented b y

mem bers of the public inthis case
. A A Q I R at4 ( em p h asi s ad d e d ); see P e rm it A p p l. a t 3 -4 (“ th e a v a ila b le s up p l yf r o m [ Si e r r a Pa c i f

i c ]
- o wned o r[
- ] c o ntr o l l e d f a c i l i t i e s a nd t i m ber l a nd s t ot a l s 400 , 00 0 [ B D T ] pery e a r ” )
. G i ve n t hes e f acts , re q u irin g S ie rra P a c ific to b u rn fe w e r to n s o f w o o d w a ste so th a t it c o u ld g e n e ra te so la r p o w e r o r b u rn m o r e n a tu ra l g a s in ste a d w o u ld p l ai n l ydis ru p tth e p roje ct ’s “b as i c bu si n es s p u rp ose ” of usi n g as m u ch su rp lu s b iom as s as p o ssib le to g e n era te steam to b e “ u se d to d ry l um be ri n e xi s t i ng k i l ns f o rthe l um be ro pe r a t i o n, a s we l l a s f e e d a tu rb in e th a t w ill d riv e a g e n e ra to r to p ro d u c e e le c tric ity f o r u s e o n site o rf o rs a l e t o the e l e c tr i c a l g r i d. ” A A Q I R a t4. 36 S ol arpow eri n part i cul arw ou l d dis p l ace th e a p p l i cant ’s p r op osa l w i th an altern at i ve e n er gys ou r ce th at , eve n th ou gh re n e w a b le lik e b io m a ss , w o u ld p la y ab so lu te ly n o ro le in p u ttin g to b enef i ci al use Si err a Paci f

i c’ s m il li o n s of

t on s of w ood w as t e. G i ven the s e f a c t s , r e qui r i ng Si e r r a Pa c i f i c t o s e ta s i de s o m e o f i t s s urpl us b i om as s so th ata sol arcom p on ent coul d be const ru ct ed an d opera t ed in stea d w o u ld im p erm issib lyred efin e th e so u rce . S ee , e . g. , P ra irie S ta te , 13 E
. A
. D
. at14
- 3 4 (re je ct i n g ar gu m ent s th ata p r op ose d “m i n em o u th ” c o a l fa c ility b e c o m p e lle d to b u rn lo w -su lfu r fu e l o r in sta ll al t ern at i ve p ow er sour ces ( such as w i n d or sol ar ) b eca u se su ch c h a n g e s w o u ld “ re d e fin e th e so u rc e ” ). A c c o rd in g ly, th e R e g io n d id n o t err b yrefu sin g to co n sid er th is op ti o n fu rth er. T h e qu es t i on of

f u el m i x i s a c l ose rone, i n ligh t of th e f act th atth e A gency ’s G r eenh ou se G as P erm i tt ing G u i d ance ac kn ow l edges th a t “ w h e n a p e rm it ap p lic a n t h a s in c o rp o r a t e d a p a rtic u la r fu e l in to o n e asp ec t o f th e p ro je ct d es ign (su ch as startu p o r au x il iarySI ERR A PAC I FI C I N D U STRI ES 63
a p p lic a tio n s) , th is s u g g e sts th a t a f u e l is ‘ a v a ila b le ’ to a p e rm it a p p l i c a n t
. ” O f

f i c e o f Ai rQu a l i tyP l a n n i n g & S t a n d a r d s , U. S
. E P A, D o c. N o . E P A
- 4 5 7 /B -1 1
- 0 0 1 , P S D an dTi t l e V

P er m i t t i n g G u i d a n ce f o r G re enh o u se G a se s 28 ( M a r . 2011)
. “ I n s uc h c i r c um s t a nc e s , ” the g u id a n c e c o n ti n u e s , “ g re a te r u tiliz a tio n o f a fu e l th a t th e a p p lic a n t is a lre a d y p ro p o sin g to u se in so m e a sp e c t o f th e p roj e c t d e sig n sh o u ld b e l i st ed as an op t i on i n S t ep 1 [ of th e B A C T anal y si s, ] un l es s i tca n b e dem on str at ed t h ats u ch an opti on w ou l d dis ru p tth e a p p l i cant ’s b as i c bu si n es s p u rp ose f orth e propose d f

aci l i ty . ” Id
. T h i s gu i d ance gi ves a str ai gh t f or w ar d answ ert o th e R egi on ’s p u rp o rted qu es t i on s abou tw h er e i n th e B A C T anal y si s consi d er at i on o f d iff erin g fu el m ix e s s h o u ld b e in co rp o rated
. S ee R TC a t13. H ow ev e r , tho ug h the R e g i o n r e a di l yc o ul d ha v e e v a l ua t e d hi g her p e rc e n ta g e s o f n a tu ra l g a s th a n t h e 1 0 % p ro p o se d b y S ie rra P a c ific , to d o s o aga i n w ou l d have u n d erm ined th e c om p any ’s pla n t o use a s m u ch of i t s w as t e bi om as s f u el as possi b l e, p artic u l ar l yatth e 49 % gas l evel M r . S i m p son sugges t s. S i m p son P et
. at9
. I t also wou l d have tr i g g e r e d the i m po s i t i o n o f N e w So ur c e Pe r f o r m a nc e S t andar ds

x (“ N S P S ” ) e m iss io n s lim its fo r N O th a t ap p ly on a n o n -g o i n g b a sis to w o o d

- an d n atu ral ga s- fir ed b o il ers o f th e typ e p ro p o se d b yS ierra P a cific. S ee 40 C. F. R
. § 60. 44b( d)
. The A g e nc y ’ s C A A r e g ul a t i o ns p r ovi d e th ati f

s u ch a boil erhas a n “an n u al ca p ac i tyf act or ” f ornatu r al g as th at is l es s th an or e q u al to 1 0 % of th e tota l f u el in p u t p er year, a n d if th e o w n e r/o p e ra to r o f su c h a b o ile r a g re e s to a c c e p t a f e d e ra lly e n fo rceab l e p erm i tcon d i t i on th atr estri ct s th e n atu ral gas fue l cap acit y fa c to r to 1 0 % o r le ss a n n u a lly, th e n th e o w n e r / o p e ra to r is a llo w e d to

x co m b u st n atu ral ga s w ith o u t com p ly in g w ith th e N O N S P S
. Id
. S ierra P ac ifi c op ted to acc ep t su ch a p erm it co n d it ion , se e Fi na l Pe r m i ta t10 ( c o nd. X
. G
. 2) , whi c h i s pe r f e c t l ya c c e pt a bl e a nd law fu l. S ee , e . g. , 40 C
. F
. R
. § 5 2
. 2 1 ( b ) ( 4 ) ( p r o v id i n g, i n th e def i n i t i on of a f ac i l i ty ’s “ p oten t i al t o em i t ,” th atan op erat i on al l i m i t , su ch as a r es tr i ct i on on t h e a m o u n tof m at er i al com b u st ed, “sh al l be t r eat ed as p a rt o f [th e fa c ility’s ] d e sig n ” if th e lim it is fe d e ra lly e n fo rc e a b le ); id
. § 5 2 .2 1 (b )(1 7 ) (p ro v id in g th a t P S D p e rm it co n d itio n s a re “ fe d e ra lly enfor cea b l e”)
. I ti s n otevi d ence of a p roje ctdesi gn “d er i ved for rea so n s o f air q u alityp erm itti n g ,” as M r . S im p so n alleg es . S ee S im p so n P e t. a t 1 0 ; see a l so D es er tR o ck , s l i p o p . a t6 4 , 1 4 E
. A. D.SI ERR A PAC I FI C I N D U STRI ES 64

In itsre spons e to t he petiti ons, Sierra Paci f ica ss er tsthat “ one of

the 37 im porta nt bus ine sspurpo ses o f thebiomas s boiler i s to t ake par t in Calif

ornia ’s renewabl e portf

olio standa

rd (‘ RP S’) , a

nd incre as ingnatural g asus ag e beyond 10% wo u l dd i s qu al i f

y th ep l antf

o r th eRPS
. ”S i e rr a

Pac i f i c Re s p . at1 8
. N o t a

b l y , th i s RPS purpos e doe s not appe ar

in Sierra Pac if

ic ’s2010 A

pplic ation, nor in the publicnoti ceor AA QI R t he Re g ion i ssued in Sept em ber 2012, nor

ha s any inf ormation be en provide d to the Boa rd by either the Re g ion or Sierra Paci f ic during the seproc ee ding s re g ardingthe RPS p r o gr am

t o s up p o rtth i s b u s i n e s s o b j e c t i v e . In d e e d , th eo n l y

re f e r e n c et o th eRPS progra m tha t t he Boa rd has been a

bleto loc ate isin a June2012 repor t submitt ed to t

he Sha sta County

PlanningCom

mis si on. SeeRe g . 9 Re sp. attach. 1, ex c. 12, a t 3 (noting that “thef

ac ility would bee lig iblefo r procurement through theSta

teof Calif ornia ’s [RPS, ] w h i c hre qu i r e s e l e c tri c c o r p o r at i o n s t o i n c r e a s ep r o c ur e me nto f e l e c tri ci ty g enerate d f

rom renewabl e energy

s ourc es ”) . In thea

bsenceof more re lev ant and timely record ref

erences , the Board assigns little w eightto thi s belated ass ertionof pro ject purpo se. a t___ ( no t i ng tha tf

act or s suc h a s the “c o s ts a v i ng s ” o f c ho o s i ng o ne cont r ol t echn ol ogyoveranot h er , orth e “avoi d ance of r i sks a ss oci at ed wi th ne w, i nno v a t i ve, o rtr a ns f e r a bl e t e c hno l o g i e s , ” woul d no tbe c o ns i de r e d “f

unda m ent al ” t o a f

a c i l i ty ’ s “ba s i c de s i g n” )
. I ns t e a d, the r ecor d estab li sh es th atS i err a Paci f i c w i l l f i r e natu r al gas du r i n g boil er st artu p and s h u t d ow n because thatf u el – ra th erth an b i om as s
– ca n b es tbe u se d t o i n cr eas e c om b u st i on t em p er atu r es i n a cont r ol l ed fashion an d t o st ab i l i ze t h e b oil er f l am e d u ri n g tr an si t i on al p eri od s. B io m a s s th e n c a n b e b u rn e d sa fe ly an d e ffic ie n tly d u rin g ste a d y- sta te co n d it ion s. S ee , e . g. , Pe r m i tA ppl
. a t3, 5; A A Q I R a t1, 12- 13, 22, 37. T h is p r u d en t u se of n atu ral ga s d o es n o t ob v iate S ierra P aci f i c’s basi c goa l of

usi n g i t s exces s w o o d w as te t o produ ce n ew w ood produ ct s and el ectr i ci ty , and th e c om p any ’s la w fu l ac cept ance of a 1 0 % gas cap i s i n ci d ent al t o th e p r oje ct ’s b as i c d es i gn . I t also d oes n o t, b y it se lf, s u g g e st th a t t h e p roj e c t’ s fu e l m ix c a n b e re a d ily ch an ged w i th ou td i sru p t i n g S i err a P acif i c’s fun d am en t al b u si n ess p u rp o se of u sin g i ts su rp lu s n atu ral reso u rce s in a b en eficial m an n er. 37 I n su m , req u i ri n g S i err a P acif ic to r e d u ce i t s surp l u s b i om ass f u el so tha ti tc o ul d incr eas e i t s na tur a l g a s f ue l woul d i m pe r m i s s i bl yr e de f i ne th i s p r op ose d s ou r ce. A ccor d i n gl y , th is opt i on need not b e e n t ert ai n ed fu rth er. S ee R eg . 9 R es p . a t 3 8 (arg u in g , co rrec tl y , th at “ [t] h e u se of a fe d e ra lly e n fo rc e a b le p e rm it co n d itio n to a v o id a p o te n tia lly a p p lic a b leSI ERR A PAC I FI C I N D U STRI ES 65

2 2 “Bio genic CO emission s” are emission s o f CO from statio nary

so urces that 38 “dire ctly re sult[] f

rom the com

bustion or dec om

position of biolog ic al ly [ ]ba se d materials 2 other t han f oss il f uel s and mineral s ourc esof c ar bon.” D ef

er ral f or C O Emis si ons f

rom Bi oenergy

and O ther B iog eni c Sourc esUnder the [P SD ] and T itl e V P rogra m s, 76 Fe d. 2 Reg. 43 ,49 0, 43 ,49 3 (July 2 0, 20 11 ). “Ex am

ples of ‘biogenic CO emission s’ includ e, 2 b u t arenot limite d to: * * * CO deriv ed f rom c om bustion of

biol og ic almaterial, inc ludingall ty

pesof wood and wood was te , f ore st r es idue , a

nd agriculturalmaterial.” Id
. r equ i r em ent d oes n ot i n val i d at e th e f aci l i ty d es i gn or re l at ed d eterm in ation s reg ard in g b as ic b u sin es s p u rp o se ”). D. T h e B o a rdD e c lin e s to R e a c h t h e C a rb o n D io x id e D e fe rr a l R u le I s s ue F i n al l y , M r . S i m p son i n corp or at es by re fer ence C B D ’s com m ent s on th e dra f tP S D perm i t , w h i ch ch al l enged , am on g oth er th i n gs, th e R egi o n ’ s d eci si on t o defe rconsi d er at i on of “b i ogeni c” 2 carb on dioxi d e ( “C O ”) em i ss i on s f r om S i err a Paci f

i c’s proposed 38 larg e-sca le b u rn in g of w o o d an d w o o d w as te. S ee Si m ps o n Pet
. at10- 11; C B D C o m m e nt s a t10- 12. A c c o r di ng t o M r . Si m ps o n, the R egi on ’s defe r r al deci si on is cle ar l yerr on eous because i ti s b as ed on
“ u n la w fu l ru le s” w h o se a p p lic a tio n in th is c a se r e s u lts in S ie rra P a c ific 2 b ei n g ex em p t ed f

rom B A C T r eq u i rem en t s f or b i og en ic C O em i ssi on s. Si m ps o n Pe t
. a t10. M r . Si m ps o n wr i t e s , “B yno tr e l y i ng o n unl a wf ul rul e s [ , ] the R e g i o n woul d ha v e f ul l ye v a l ua t e d the pr oj e c ta nd [ woul d] n othave app r oved i tas th eydid. ” Id
. I n i t s r e s po ns e t o C B D ’ s c o m m e nt s o n thi s i s s ue , th e R egi on exp l ai n ed t h atE P A had i ss u ed a fin al ru l e i n Ju l y20 1 1 th atjust i f i ed th e R eg ion ’s defe r r al choi ce. T h atf i n al ru l e had es t abl i shed a th r ee2 y eardefe r r al peri od f

orr egul at o ry deci si on s abou tC O em i ss i on s f r om bi o g e ni c s o ur c e s ( s uc h a s Si e r r a Pa c i f i c ’ s pr o po s e d bo i l e r ) , dur i ng w h i ch t i m e th e A gencypla n n ed t o con d u ctf u r th ers ci ent i f

i c r evi ew of 2 b io g e n ic C O e m iss io n s b e fo r e d e c id in g w h e th e r a n d h o w to re g u la te 2 su ch em ission s. S ee R T C a t 3 4 -3 5 ; see a l so De f e r r a l f o r CO Em i s s i o ns f

r om B i o e ne r g ya nd O the rB i o g e ni c So ur c e s U nde rthe [ PSD ] a n d T i t l e V Pr o g r a m s , 76 Fe d. R e g . 43, 490 ( Jul y20, 2011) (“ D e fe rra l R u le ” ). T h e R e g io n fu rth e r sta te d th a t an a p p e a l o f th is ru leSI ERR A PAC I FI C I N D U STRI ES 66

The Cour

t’smanda tem ust is sueseven day s af

ter t he time to f

ilea pe tition 39 f or rehea ring ex pire s, or sev en days af

ter ent ry of an order denyinga

timely pe tition f or p an elreh ear in g, p et it io nfor r eh ear in g en banc , or motio n f or stay o f mandate, which ever islater, un le ss the Cour t s hortens or extends thetime. SeeFe d. R . A pp. P. 41(b) ; D. C. Ci r. R. 41 (a) (1 ). Mo reo ver, th e t i mel y fili n g of a p et it io nfor p an elreh ear in g, p et it io nfor r eh ear in g en banc , or mo tion f or s ta y of manda te , s ta y s themanda

teunti l disposition of

thepe tition or

motion, u n le sstheCour t order s otherwis e. SeeFed. R. A pp. P. 41(d) (1) ; D .C. Cir. R. 41(a)( 2). w as pen d i n g i n th e D
. C . C ircu it ; how ever , un t i l s u ch t i m e ( i f eve r ) as th e ru l e w as overtu r n ed b yth e f eder al court , th e R egi on had d i s c r e t i o n a r ya u th o r i tyt o p r o c e e d i n a c c o r d a n c e wi th th e ru l e . RTC a t34- 35. O n Ju l y12 , 2 0 1 3 , th e D
. C
. C i r cui tvac at ed t h e D ef err al R u l e. C t r . f orBi o l o g i c a lDi v e rs i t

y v . EPA , N o s . 11- 1101, 11- 1285, 11- 1328, 1 1
- 1 3 3 6 ( D
. C
. C i r . Ju l y1 2 , 2 0 1 3 )
. T h e C ou r t ’s jud gm ent w i l l not b ec o m e fin al an d effec ti v e u n ti l su ch ti m e a s itissu es a “ m an d ate.” 39 S ee F ed. R
. A p p . P
. 41 ; D
. C
. C i r . R
. 4 1
. A t th is w r i t i n g, th e C ou r thas n oty eti ss u ed such a m and at e, and th e A gen cy stil l has a w i n d ow of tim e in w h ic h t o e v a lu a te th e C o u rt’ s d e c isio n a n d d e te rm in e h o w to p ro c e e d in lig h t o f it. G i v e n the s e de v el o pm e nt s , the B o a r d de c l i ne s t o r e a c h the 2 b iog en ic C O issu e ra ise d b y M r. S im p so n . S ee I n r e A vena lP o w er C t r . , LLC , P S D A p p e a l No s . 1 1
- 0 2 t o 1 1
- 0 5 , s l i p o p . a t1 4
- 1 5 ( E AB A ug . 18 ) , 15 E. A
. D
. _ __ ( Bo a r d h a s di s c r e t i o n t o r e v i e w PSD p erm it s), a

p p e a ldo c ke t e ds u b n o m. S i e r r a Cl u b v . EPA , N o . 11- 73342 ( 9 th C i r . N ov. 3 , 2 0 1 1 )
. H ow ever , th e B oar d exp ect s th at th e R eg ion w ill co n sid e r M r. S im p so n ’ s c h a lle n g e to th e p e rm it o n th is is su e in l i g hto f the de c i s i o ns the A g e nc ymak e s r e g a r di ng the C o ur t ’ s r u l i ng on th e D ef

err al R u l e.SI ERR A PAC I FI C I N D U STRI ES 67 V I I I
. C ON C

L US ION F or the f o r e g o i ng r e a s o ns , the pe r m i t i s r e m a nde d t o R e g i o n 9 to h o ld a p u b li c h ea rin g in a c c o r d an ce w ith 4 0 C .F .R . § 1 2 4 .1 2 (a)(1 ). T h e R e g io n is d i r e c te d to re o p e n th e p e rm it p ro c e e d in g s fo r th is p u rp ose, a n d s h al l i ss u e a f i n al perm i tdeci si on and a d ocum ent th at r es p on d s t o any new com m ent s r ecei ved d u r i n g th e pu b l i c hear i n g. The Boa r d de ni es t he pe ndi ng mot i o ns t o f i l e a pe t i t i o n o uto f

t i m e a nd t o s ubm i ta ddi t i o na l docum e nt s . The B o a r d a l s o de ni e s v a r i o us p r ocedu r al a n d s u b st ant i ve a r gu m ent s r ai se d by P et i t i on er s, as di s c us s e d a bo v e . The B o a r d decl i n e s t o r e a c h the c ha l l e ng e t o the R egi on ’s deci si on t o r el yon t h e D ef err al R u le t o defe rconsi d er at i on 2 o f Si e r r a Pa c i f

i c ’ s bi o g e ni c C O e m i s s i o ns and i ns t e a d e xpe c t s the R e g i o n t o c o ns i de rthi s c ha l l e ng e c o ns i s t e ntwi th the A g e nc y ’s de c i si ons o n ho w t o pr o c e e d i n the wa k e o f the D
. C
. C i r c ui t ’ s r e c e nt vaca tu rof

th i s ru l e. O nc e the R egi o n i s s ue s a f i na l pe r m i tde c i s i o n f

o l l o wi ng the publ i c he a r i ng r e qui r e d bythi s r e m a nd, tha tf i na l pe r m i tde c i s i o n a nd th e B o a rd ’ s d e c isio n in th is c a se b e c o m e fin a l ag e n c y ac tio n su bj e c t to j udi c i a l r e v i e w. 40 C. F. R
. § 124. 19( l)
. A l tho ug h a n a ppe a l t o the B o a rd is a p re re q u isite to ju d ic ia l re v ie w o f a n in itia l fin a l p e r m it d ec isi o n , id
. a t§ 124. 19( l)(1 ), s u c h a n a p p e a l is n o t a p re re q u isite to jud i c i a l r e v i e w o f a f

i na l pe r m i t de c i s i o n f

o l l o wi ng a B o a r d r e m a nd of a per m i tdeci si on un l es s th e B oar d “ sp ec ifi cal l yprovi d es th atapp eal of th e r em and deci si on w i l l be r equ i r ed to e x h austadm i n i str at i ve r em edi es . ” Id
. a t§ 124. 19( l) ( 2 ) ( i i i )
. The B o a r d i s no tr e qui r i ng , a nd w i l l not acc ept , an app eal t o th e B oar d on t h e f i n al perm i tdeci si on f ol l ow i n g r em and i n th i s cas e. So o r de r e d.

## • 

# o JUt 1 8 2013
Is Board

(Slip Opinion) NOTICE: This opinion is subject to formal revision before publication in the Environmental AdrninistrativeDecisions (E.A.D.). Readers are requested to notify the Environmental Appeals Board, U.S. Environmental Protection Agency, Washington, D.C. 20460, of any typographical or other formal errors, in order that corrections may be made before pUblication.
BEFORE THE ENVIRONMENTAL APPEALS BOARD UNITED STATES ENVIRONMENTAL PROTECTION AGENCY WASHINGTON, D.C. ) ) In re: ) ) Sierra Pacific Industries ) PSDAppealNos.13-01,

(Anderson Processing Facility) ) 13-02, 13-03 & 13-04 ) PSD Permit No. SAC 12-01 )



# ------------------------ )
[Decided July 18,2013] ORDER REMANDING IN PART AND DENYING REVIEW IN PART Before Environmental Appeals Judges Leslye M. Fraser, Randolph L. Hill, and Kathie A. Stein.

### CERTIFICATE OF SERVICE I hereby certify that copies of the foregoing 

### Order Remanding in Part and Denying Review in Part in the matter of Sierra Pacific Industries (Anderson Processing Facility), 

### PSD Appeal Nos. 13-01, 13-02, 13-03, and 13-04, were sent to the following persons in the manner indicated: By 

### First Class U.S. 

### Mail, Retu rn Receipt Reg uested: Ed W. Coleman Post Office Box 1544 Shasta Lake**City~** 

### California 96019 Celeste Draisner 1000 Shepard Court Redding, California 96002 Heidi Strand Post Office Box 1544 

### Shasta Lake City, California 96019 Rob Simpson 27126 Grandview Avenue 

### Hayward, California 94543 David C. Brown, P.E. Envtl. Affairs & Compliance Man'ager Sierra Pacific Industries 19794 Riverside Avenue Redding, California 96049-6028 William M. Sloan, Esq. Morrison & Foerster LLP 425 Market Street San Francisco, California 94105-2482 

### By EPA Pouch Mail: Kara Christenson, Esq. Office of Regional Counsel, Region 9 U. S. Environmental Protection Agency 75 Hawthorne Street Mail Code ORC-2 San Francisco, California 94105

### By EPA Interoffice Mail: 

### Janet McCabe, Deputy Assistant Administrator Office of Air and Radiation U. S. Environmental Protection Agency 1200 Pennsylvania Avenue, N.W. Mail Code 6101A Washington, D. C. 20460-0001 Lorie J. Schmidt, Esq. Office of General Counsel Air and Radiation Law Office U.S. Environmental Protection Agency 1200 Pennsylvania Avenue, N.W. Mail Code 2344A Washington, D.C. 20460-0001 Matthew Tejada, Director Office of Environmental Justice U.S. Environmental Protection Agency 1200 Pennsylvania Avenue, N.W. Mail Code 2201A Washington, D.C. 20460-0001

Secretary