@,<ED $14~ 2-., 

### UNITED STATES ENVIRONMENTAL PROTECTION AGENCY 

# $tJg: Office of Air 

### Quality Planning and Standards -? 

### Research Triangle Park, North Carolina 2771 1 % P

%'4( ,,ol~G 

## m221981

,


### SUBJECT: Agency Policy on the Use of SpecialPurpose MonitoringData FROM: S. ~eitz, Director ce of

### Air QualityPl TO: Director, Office ofEnvironmental Measurement and Evaluation,Region 

### I Director, Division ofEnvironmental Planning and Protection, Region 

### I1 Director, Environmental Assessment andProtectionDivision, Region 

### III Director, 

### Air, Pesticides, and ToxicsManagement Division, Region

### N Director, 

### Air and Radiation Division, Region V Director, Multimedia Planning and Permitting 

### Division, Region 

### VI Director, Environmental ServicesDivision, RegionVII Director, 

### Air Program, Region

### VIII Director, Air 

### Division, Region 

### IX Director, Office of

### Air Quality, Region X 

### The Office ofAir Quality Planning and Standardshas received several inquiriesfrom Regional Offices into how specialpurpose monitoring data canbe used in making a variety of regulatory decisions such as designations, classifications, and attainment date extensions. 

### We also have a final ruling from the U.S. Court ofAppeals forthe Third Circuitwhich supportsthe U.S. EPA 

### denial-of~enns~lvania's redesignation request forthe Pittsburgh-Beaver Valley ozone nonattainrnentarea. In light ofthese questions, legal developments, and the new National Ambient Air Quality Standard (NAAQS) implementation directives, 

### I believe it is necessary to discuss the use of all publicly available specialpurpose monitoring data for all regulatory applications. The Agency policy on the use of

### all specialpurpose monitoring data for any regulatory purpose, with the exception offine particulate matter data (PM-2.5), is that 

### all qualityassured and valid datameeting 40 

### CFR 58requirements must be considered within the regulatory process. This policy appliesto aIl

### ozone, carbonmonoxide, sulfur dioxide, nitrogen dioxide, lead, and particulate matter (PM-10) specialpurpose monitors, whether the data arereported into the AIRS database or availablethrough other means. The recently findied 40 

### CFR 58 particulate matter rule (62 FR. 38763) provides speciilcdirection on how fine particulate (PM2.5) data collected by special purpose monitorswill 

### be considered 

### in the regulatory process.

### Specialpurpose monitoringis conducted on a fiequentbasis in the United States for a variety ofreasons. Examples ofwhy State 

### and local agenciesuse specialpurpose monitoring as a tool to supplementtheir ambient air

### monitoring networksincludethe need to obtain information on wheretolocatepermanent monitoring stations,to provide additional data in 

### support of pollutant formation and transport analyses, orto assess 

### air quality

### in a particular location. Industriesoften operate specialpurpose monitoring sites in support ofthe Prevention of SignificantDeteriorationProgram, and to satisfy their own information needs on air 

### quality around their hcilities. These studiesvary 

### in duration fiombeing temporary sitesneeded only during a portion oftheyear to long-term 

### airpollution studies over 

### a large area. The U.S. EPA and otherFederal agenciq designate sitesthat arepart oflong-term studies orpermanent networks as special purpose monitors, e.g., Clean 

### Air Status and TrendsNetwork (CASTNet) and National Park Service sites. Where public hds are expended to supportthese studies(§ 

### 105 Grant fbnding for example), theresponsible monitoring agencywill 

### generallyreport these datato the U.S. EPA as part oftheir routine monitoring data submittalintothe Aerometric Information Retrieval System 

### (AIRS), orin someotherform, such 

### as hard copy. The U.S. EPA also recognizes that there are a number of specialpurpose monitoring stations operated and maintained by private entitiesusing privatehds that do not regularly report the datatothe 

### AIRS orto the Agency through othermeans. On occasion, select private entitieswill provide these datato the U.S. EPA on a voluntary basis. Thesetypes of special purpose monitoring sites arefrequently 

### operated 

### as part of private research studies or as part of an industry group's interest

### in obtaining informationon their local 

### air quality. Nationwide, we currentlyreceive data fiom 5,209 criteria pollutant ambient air monitoring stations, ofwhich 1,639are specialpurpose monitoring stations operatedby Federal agencies, State or local agencies, industrial groups, Tribal governments, or otherprivate entities. While many ofthese 1,639specialpurpose monitoring stations are operating in counties where other State and Local 

### Air Monitoring Stations(SLAMS) are also activelyreporting data, many of these special purpose monitors are operatingin counties that do not have active SLAMS to provide supplemental information. As 

### an example, there are 1,014ozonemonitoring stations reporting datato the AIRS, ofwhich 151 are special purpose monitoring stations that are operating in countiesthat do not have other SLAMS supplementingthe county's database. It is this subset of special purpose monitors, along with those special purpose monitors whose data are not reported to AIRS, that are expected tobe affectedby the U.S. EPA's policies regarding the use of special purpose monitoring data. The Third Circuit Court decision supportsthe view that theEPA may not redesignate an area from nonattainment to attainment iftheEPA knows that the area is not meeting the ozone NAAQS. Specifically,ifthe U.S. EPA knows of aviolation or violations ofthe ozoneNAAQS by either examining informationwithin the AIRS or data fiom other sources and these data meet all 40 CFR 

### Part 58 

### requirements, theU.S. EPA cannot determinethat an area is attainingthe NAAQS.

### Existing 40 CFRPart 58 regulations do provide restrictions on the special purpose monitoring dataused for demonstrations ofattainment or nonattainment or 

### in computing a design value for controlpurposes. Spdcally,these data and monitoring sites must meet the requirementsfor SLAMS described in 5558.13, 58.22, and Part 58 Appendices A and E. These regulations areprimarily concerned with the qualityof the analyzeror samplingmethod and with the quality of the datareported. These restrictionsdo not includethe requirementthat the special purpose monitoring 

### databe reported to the U.S. EPA's AIRS. The regulations also allow for - 

### alternative monitoring seasons (e-g., different ozone seasons) for specialpurpose monitoring sites provided that these alternative seasons are approvedby theRegional Administrator. Briefly, the Part 58requirements can ke summarized as below: \ 

### 1. 

### The specialpurpose monitoring data mustbe from a U.S. EPA approved reference or equivalent method (558.22). 2. 

### The special purpose monitor must be operated 

### in accordancewith all applicable SLAMS quality assurancerequirements as listed 

### in 40 CFRPart 58 Appendix A. 3. 

### The special purpose monitor must meet 

### all probe or path siting requirements as defined in 40 CFR Part 58 AppendixE. The U.S. EPArecognizes that decisions onthe use or non-use of special purpose monitoring data may impact certain areas' designations and hre regulatory actions. It is not U.S. EPA's intent to discourage additional special monitoring studies or to discourage the use of non-SLAMS data; however, under current regulations, U.S. EPA is obligated to consider all publicly available, valid (i.e., collected 

### in accordancewith

### 40 CFR 58), and relevant data in the NAAQS regulatory process. In 

### addition to datareported to the AIRS, publicly available data may include data availablefiom other sourcesincludingthose specialpurpose monitors operatedby third parties. Once the U.S. EPA is aware of these datafromnon-AIRS sources, the U.S. EPA shoulduse reasonable means to obtain these data; ven@that these data were collected in accordance with 40 CFR 58; and, once quality-assured, consider these datawithin the regulatory decision-makingprocess. This policy clarifies previous agency policy interpretations. In 

### particular, this revises two previous interpretations that only ozone data reported into AIRS would be consideredwhen evaluating an area's compliancewith theNAAQS. One interpretation was documentedin the Federal Redster for the correctionto the classification ofthe Beaumonflort Arthur Ozonenonattainrnent

### area (61 

### FR 14496)aftergoing through a State implementationplan consistency analysis, and the second was documented in theFederal

## Rw for the redesignation ofthe Bay Area from nonattainmentto attainment with the ozoneNAAQS (60 FR 

### 27028). Under the 8-hour ozoneNAAQS, the OAQPS does not expect to use datafrom ozone monitors that operatefor fewer than 3 

### years injudging compliancewith the ozoneNAAQS. This policy, which is consistent with the new 40 CFR Part 58 regulations for the measurement offine particulate matter, should provide some reliefto those agencies who operate short-term special

### purpose monitoring studies (no more than 

### 2 years in durdon). Specifically,this provision is expectedto promote short-term ozone special monitoring studiesin 

### rural or remote areaswhere routine regulatorymonitoringto assesspopulation exposure is not normally conducted, and , 

### where implementingtraditional localcontrolmeasures would not provide for attainment of the ozoneNAAQS. TheU.S. EPA

### will propose regulatoryrevisions to 40 

### CFR 58 

### in April 1998

### that 

### will strengthen the Regional Office's flexibilityin dealing

### with special purpose ozone monitors and using these data as appropriate. -. - 

### The U.S. EPA also recognizes that this deQsion on the use of specialpurpose monitoring data may impact actions withintheFederal Advisory CommitteeAct Subcommittee on Ozone, Particulate Matter, and ~kgional 

### Haze Implementationbased on recommendations from 

### the Monitoring IncentivesAd Hoc Group. This group ofexternal stakeholders has investigatedways in which the U.S. EPA can act to encourageadditional monitoring 

### and reduce regulatory burdens on affected entities. Among their many options, this group has recommended the formation of publieprivate partnershipsto exparid ambient monitoring, with a recommendation that all data be made publicly available. It is importantto note that once these databecome part ofthe public record, the U.S. EPA is obligated touse these datawithinthe NAAQS regulatory process. Ifyou require fbrther information, please contactLee

### Ann Byrd at 91 9-54 1-5367 

### for information on 40 

### CFR Part 58 

### and monitoring; Tom Helms at 919-541-5527 

### for informationon ozone and nitrogen dioxide air qualitypolicy issues; and Joe Paisie at 91 9-541-5556 

### for particulate matter, carbon monoxide, lead, or 

### sulhdioxide 

### air quality policy issues. Attachment cc: Deputy Director, Office of Ecosystem Protection, Region 

### I Director, Division ofEnvironmental Scienceand Assessment, Region 11 

### Director, Air, Radiation and ToxicsDivision, Region 

### III Director, Science &

### Ecosystems SupportDivision, Region 

### IV Director, Air-RCRA, and ToxicsDivision, Region VII 

### Director, Office ofEnvironmentalAssessment, Region X Lydia Wegman, OAQPS Henry Thomas, OAQPS WilliamF. Hunt, EMAD Sally Shaver, AQSSD Tom Helms, AQSSD Joe Paisie, AQSSD Richard Scheffe, EMAD David Guinnup, EMAD Richard Ossias, OGC Lee 

### Ann Byrd, EMAD Regional Monitoring Contacts Warren Freas, EMAD

### David Cole, AQSSD John Silvasi,AQSSD 

### .Barry Gilbert, 

### AQSSD 

### LarryWallace, AQSSD

### Rled July 28, 1997 

### UNmDSrATEs 

### COURT 

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### 40 C.F.R 

### 6150.81aS
.(18961.!: 

### llte;: EPA ' mtasurca 

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# wt aounlry. 

### When a .monltorlng sib rncaeurts that a'

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### (1996). lf:a

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request CM rtckslgnaUon, 

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.. 

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### must And thal 

### 4 fhrc of these crllnja 

### havc 

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## hi EPA' dasilr*d the p1tlsbu&-&8~& Valky 

### Arca (tht mArea"l RO .a modurtle 

### nonatlafnmnt am . 

### for 

### omnc.' See 56 

### Fad; Re& WD691, 56,820

### [Nov. 6. *1991); 

### The EPA based file 

### dtelgnetJon 

### on otonc 

### utduring the Ulmyeer perlad 

### fim 1987 to 

### 1989. See fd 

### In Novtmbet 

### '1993,. 

### Ulc. Penneylvanta 

### ,.Department of hulmnmcntal 

### Rtsout&d submlllcd lo the '&PA a 

### mud Lo 

### rcdeafgnate lhe.&ca 

### lo aUaInmcnt slatus 

### for mane, 

### Thic redcawallon ~qucst 

### polnhl out that, 

### the Arta 

### hed

. eCLalnad Chc 

### NAAQS for 

### orione durlng the Ulrabyear pulod



### from 1991 -1993, wlth 

### only 

### two c)[ccdmces In 1991, 

### zero . cxccedanacs In 1992, and one 

### cxdanoc In 1993. &e 61 Fed. Reg. 19.193, 19.195 Ney 1. 

### 1996). 

### knnsylvanla's requcat acknow~~ Ihal.lls 

### SIP had not 

### yd been rutty approved by the EPA, but slated thal lhe stale arpacled to mcehre full EPA 

### approval shortly, rttc rcqueat 

### also lricludad a matntcnsnet 

### . plan, under which 

### Pcnnsylvanla 

### - demonelratad how It

### planned to rndnmnthe NAAW

### br the 

### . 

### ana unUl lhe 

### year '1 

### tn JU~
. I

995. 

## he. l5PA pub~ahet~ .ei ha;^ 

### nouct 

### dt ' detcrmlnhbn that lhe Area wae Iri alialnmerll of 

### Ulc T. . . # 1, 7hc PI@--lkam Vdky ,&em. 

# 'e &&my 

### Cwntf. Amwdronqt Came. kver bdy.. Bulb County. F*yc(Ct Cowrty. Waeldngton Oounty.rnd WchmebbdWnly. I . '
rculakn 

### In May 1995. lhls mbkn ac- that Ihe.- arlbnJssbn had ~bed upnan mulomoMk Insp6cUon.andndnhnoe ~mltmlRnrryhr*nbhedsuspondedsawtIlasrronll~ measure br lhe ust ot relWhtedgadlne. arh)ch RerrnyhranlP had also suspmdad 4 I.-1997 12:,Be EPA R3 APE 215 566 2124 r.wo 

### -.

. .. . 

# - :I 

## ihi peiiiiina p~li~ 

## L. 'be roi~wrlng 

### p..+ 

## r& the racafd 

### ais euldcncc that 

### Pcnnsylvan~ 

### .ralead lhle 

### atgu@nt In Ib cammenla Lo 

### the EPAuspropostd rule 

### dlsappmvlng 'redtslgnaUon:
. . 

### . ~~nna~r~ania bj~c&a '&it 

### the '~lbburgh atofid nonatlalnmml 

### area ehould have been redtelgnakd 

### by. EPA to altalnmC 'the Commonwealth submlllcd lhc request In 1993. 

### and EPA 

### had ample 

### opporlufrlty and

... JueUf)caUan. 

### - . . . -I 

### - 

## liar 

## he SIR 

### yar pedod from' 1- 

## ;b 

# .ae

.

### nabnal ambknl 'alr 

### quality 

### slandard Ibr wane was 

### achlevcd. During
, lhfs Urn' eight ozone 

### .monlbre operated Tor Chc CuU 

### sh. years 

### and one 

### eddlllon'al monltor operated two yuua al one slk 

### and tht Four subsequenl 

### cara a4 a; 

### nearby ellc. SLw of 

### thest monltora ha 

# I no ucotxdancer 

### durln lhls p#lod and 

# d Ulc tanalnlng mocltora shyad 

### un q the 

### standard. Thus 

### lor the four oonkiuUvc Ulrac-ytrir 

### pehd fmm 

### 1889.thmugh.1891. 

### the Pittsburgh arta 

### atblnsd 

### and malnlalnad lhc amblml standard. . 

## bm M 

### Proposed
, 

### Dtsapprn~d oj 

### Re9ud .LO 

### RedesbMLe R[Llsbrirgh <hswtc Nonallalnmeni At&&. 

### JA. at 550. Pennaybanla furlher 

### oommenlcd thal 'lhc Flt+bur& arta 

### lhad 

### nail been 

### rcdcalgnated In a 

### Umcely mannet," Id at ' 551.

... 

### . , 

# I? ;. 

### Jd 

## ht && U&&& 

## & humclcnl 6

## b&&&c (I 

## - pcllUoner08 inlrtcate alalulary .lnterprcCaUon 

### .argumtnl, m a: 

### . 'Ibesc com~ncnb, .adm~ldty demonstralt 

### . 

### lhat Ptnrwyivanla, durlng Lhc rulemaklng ploceas, broached lhc 

# E qucaUo~~ 

### wheU~a the EPA had aclad' In e Udy 

### manna

. YtC the 

### eommenblndude ne((htr e rda-cnccto 

### dr statutory pmvleloh lmposlng 

### s specific Urne Hdl,,

### nor iaii ewplldl argument that thialstcnoc of 

### such a 

### ttmc lmll pduded 

### the 

### EM Thin oansldcrlng.(he 19S uroccdano2e. 

### The



# . . 

# ' pc~~ofio U~UB rpb lte mtatutoty lnkrpretauon argument 

### $I for 

### me 

### fitst Urn

### on appeal. P . 

### .

### W; rawgtik 

### that 

### tour prdc h& been 

## h hear !mud 

## I8 .-I 

### nd. ,. 

### rald 

### In. dltr , 

### proaaadlngs 

### when.
. 

### spcrdal I cCmrmstnncee Man1 

### an cxccpUon lo the 

### general rule..)" rl. m Hyfs&fbI 724 F.2d at 36 n. 1 (ooneldcrtng the rehaclMty I 

### ... _.... . . .....:.... . 

## . , . 

### it~lcndmerib. 

## i~. a 

## :i&iii atiucauiin 

# .a, ~io~gh 

### ~le mlrbacUvIly 

### argumchl 

### was,

### not ralacd In 

### lhe lower court. because I1was 

### 'an IsSsSue of national Importance' 

### that was 'singularly wilhln 

### iht oompelmoc of 

### appellate court$ 

### and mot prdfcated on 

### complex fachid delermlnellone") 

### see ah SekcW 

### Risks 

### Ins. Ca 

### u. BFU~O, 718 

### F.2d67. 

### 69 (&I Clr, 

### 1883). Although a ,varftty of clrcumslancts 

### have -.pmrOiiiplnd appdlate 

### aourts to apply 

### Lhle ~(ceptlon.'tqhc matter of 

### what qucelloni

### may 

### be taken icp and

### rescohrad for the Rnt ilmt on eppal Id ' one 

### ldl prtmnrtly to lhe dlt+mtJori of Ihe eourLa of 

### appdd, lo bc.wrcrclsed 

### on Iht lecta offndlvldual caw.' 

### SingleLon ~'Wutll. 428 

### U.S. 10& 121 

### (1976). In lhlsicase, we Rnd 

### It

### Inappropriate locohsldrr 

### We 

### new1- Although 

### ap@lls(c aurls 

### arc ceddnly 

### capable'of 

### addreasfnk .qucsUone of ehluloly,lnkrptcbtlon the1 were riot mlssd, dur!ng an agency's ~IernekLng pmm& I1 

### Is far inore elliclenl 

### tor ~lurts lo face such quceUons only
.ancr 

### Lhy .

### have 

### . been bonrldtrad by lhc agaq ha1 Conpess liaa 

### chargel 

### wth the pt~mmy rcaponslblllty for cnrorclng the oomplut slalult In quesUon.

. . . .

.. In 

### LC inatant cam. 

### ihe - EPA 'and Pcnnryhranlava 

### bcpartncn t of EnWonnmlal RaQurccm pasas, ~pld cirpcttlee mgardlng lhe, working3 of, the. Clean Alr. Act.


# . Pennsyhrsnla was thus fully cepabk 

### d aplldUy 

### ralelng the qpmenl Lhal 142 U.S.C. fV407(dN3HDl rcgulree the 

### ETA lo ad on a rbdtslgnabn 

### r#lual, wlUlln. 18 

### mon,lhs. Had Plennsytvanla mde such M qJlcll, argumtnl, the EPA 1, 

## - would have 

### Ulm spplkd Ils elngular WPG7flseon lhc AcL.6 tiu6chanlcs. and made' a mllng 

### (hat would 

### lntorm Uie dcUbcraUonr of thls 

### court on appeal, 

### It (hle ,mud rocre b conelder the petllloncr'e argument without be 

### .bcntRC of i

. . lhe 

### EPAb 

### expcrt Input we 

### woukl undennlnc a funhtnlal

: princlpk 

### of our ,eyeltm of Judkld mrlcw of admlnlslratlve deeislone.

. . 

### . ... .I . :, . . !. 

## Ihcham $odd 

## bo&eL pe~tknei 

# P.muit or Ulla oulc~mc Is not 

### .ao grel 

### am b warrant 

### dlaqard)ng U~ae 

### mnams. Sa.,,e.g, Norlh 

### Ahmo Waler Supplg 

### Corp u. 

### 'CUy oJ 

### San Sunn, 90 

### E3d .910. 916 

### (5th.Clr,), & denlat, 117 S.Ct. 

### 586 (1996) (an appcflalt 

### court shauld invoke Ils dlecreuon lo 

### review a purely 

### legal lasue nol ratd below when "a mlscarrlaffe of JueClce would 

### mull

## .... Y 12' 

### fin; 

### \the a6ur14sl .tallurn to .consldcrtl)." 

### For 

### thesc 

### nasone, We 

### .hold that 

### the pcUUoner may 

### no1 Wse tor 

### lhe 

### Amt Ume 

### 9n thb 

### pdlng 

### IN argument . 

### that 

### 42 U.S.C.



### . B1)07(d](S](D) rrqu1rcd~'lhc EPA (P act on Rnnsylvaqla's 

### rakdgnaUon rcquc.1 

### wllhln 

### 18 monlhs. 

## !, ' '

. 

### Mo~couie~~ vq .ifwe 

### wen 1s 

## iht kalb 

### of (he 

### Mlloner6a argumtnl, 

### nm would. 

### hold that :43 

### U.SC. C1;1407[d)f31(01dld 

### not 

### pMJudt tht,&PA 

### tram coneldding lhe 

### eunmer 1995 exobtdpncc 

### dm@: lhc 

### l.ngu& ofthe 

### provlelon hit

### enumcratta lhc 

### tedwlltflallon dtcrie lends lo

### dupporl lhla 

### result. .Unc)e,r 

### 42 U.S.C. §7407(d)[3)[E)[U, 

### the 

### EPA Admlnblrator "may nd"

### promulgsle 

### a Fadc%lgnaUonof 

### a nonetlcrlnmcnl area 

### unlcr#r, among other 

### thlnge, 

### *the Admlnlswelor deltrmlnw .@a1 the arte 

### hea allalnad the naUonal ainblcnt alr 

### quality 

### elandard." Iht ust 

### of the 

## tern, 'hm etlalnad" Instcad of +aLlalnad' 

### may be lnterprcted as ~uggesung 

### Lhal the, 

### aUnmn1 mu81 mnUnue 

### unUl Ulc 

### dale of lhc 

### radcslgnatlon. '. 

### . . :. , ,... 

### . 

### lo iny went. eva, 1~we 

## ~.Mmc for pr-t 

### putp& ihd lhe

### Ianguagt of 

### 42

### U.S.C. @407(d)(3)[E) Is amblguoue 

### as Co whether' 

### the EPA,

### mey dlsmgard .&la 

### Me!ng 

### afltr Ult 

### cxpIraUon of 

### h 

### 18-man* 'paled, we 

### muek:dcfa lo lhe EPA's lnlerprehtlon of lhls 

### prmrlsbn 

### undcr the 

### .rule of Chnm 

### U.S.A., Inc v. 

### NaEunal Resowroes t)e- 

### Cbtutdk I-, 467 US. 837 (198a). Ck.rw\ Inalrucb: 

### ddng

, 

### courls. thal 1C 

### Congress 

### has not *dlrecl)y epokcn. 

### lo 

### lht praclse 

### queellon a! Issue 

### ;

# ..Cht 

### qucsUon fw the 

### wart Is whclher'tht 

### agcncyep 

### answer is 

### bad on 

### s pwmlsslble oonsLnrcUon of the atalulc.,' 

### kd at 842-43. 

### me EPh 

### hm publlehod 

### numuskgta!aUve 

### mleq lhm$ have 

### Inlapretad- 

### 42 U.S.C.'ll7407(dN3)lE) a8 

### obllgh'tg the EPA Id 

### deny d redeslgnallon raqucal 

### If the 

### EPA know8 lhat 

### lhe aka

### b not : 

### In p-1 

### atwnment ,of, t&e' WQS,' Wyec 

### *e EPA'e 

### -- 8, Sw,.e.nu el 

### Fed. Rtg. 18.41Eq '18.197 (Iht find Nk 

### ~~TWW

, , pmneyhnlo's rspucs( lomlw@mteihtA&. Inwtticlt tht WA *ndddl !bt 1 haw mI md may 'not (In U&t d:ssudn lOl(dHlWAH6 mnd 

### lMCdW3MEB ape r rc&Wmupn ngnrlfor anawa' Uut

## li?WUng drnbard'): 6l Fad b& 9.W). 4.599 (!886)IW:'prpH 'nJs dqlqPennayhnnlr'. mquc?( 40 dc8l(pretc !b 

## w. In nMch tw 

## err(-- 1. . I. ..

### Uu!
. ' 

# '9 . ptpy@ .my!:
. 

### . 

## Wl,y(r LnlerprctaUbn la, e 'reasonable aonsl~cllon 

### af Ute 

### elaltilc. See 

### Chmm 467 U.S. 01

## W (when Cong~ess has lmpllcltly delegalad lo 

### an agency 

### Lhe 

### aulhorlly 

### Lo blucldalc 

### a speclfic pravlrrlon of lhc elelu~e 

### by 

### p.gulaUgn," a &cwln~ court 

### 'my no1 subsUlute 

### ICa own canehcbon 

### of 

### a 

### statutory pnrvislon lor ' 

### a reasonable..IntcrprelaQ~n. made by @t

. . . . 

### . 

### admh!atiator.of 

### q agcn.cyll, ,' .: . .. . . . 

### . 

### The prlllloncrs 

### miend that 

### -~7(d)(3)1~) pmhlbtls Q=

.

### EPA fiom.conalderlng any 

### .data acclutd

. mop Ulan 18

month? 

### an- .lht
, 

### eubmlmbn
..or ' Qtnnsyhranla's ruleetgna~on 1.bputet.7hcy &

# - correctly. in our ~cw

. 

# -- that 

### the usc.otlht word 

### *shall" In &407(d)(3110) 

### Impow 

### upon the .EPA 

### a. 

### mandatary 

### duty. lo act 

### on a alelc's redtdgnallon mqucsl 

### wlChln 18 monlhs. The pttlllonde 

### argument tale,. 

### however, because @7407(d)(S)D)'s 

### use of Ult word 

### 'shalr docs not .conclu'slvety lndlcatc 'thal Conpas 

### Intended to 

### prohlblt 

### Ihc EPA ,from taking acUon ah the 

### 'cxplraUonoC 

### the eletubrity sprclflad 

### tlmt perldd. " ' ' !. . . ' Thc"Supkc

### court Vad

### ia slmllw quesllon of statutory Ontcrp+.@n 

### In'.

### &odr, t4. PCem .Counfy. 476 U.S. 253 11986); 

### At Issue 

### In "Bm& was a provlelon of 

### lhe Comprch~Lvc
. Rrnpta-! and Walnlnp! Act ('CETA")
. . 

### stsung lhat lhc 

### +crcbry of Wr ."shall'. 

### Issue a final 

### ddcPmlnpyon ,aa 

### tp 

### .(he mlguse 

### o.f CWA turida by a grant 

### rajplenl

.

### wilhln 

### 'I20.. 

## dam dcrrdvlng 

### a compldnC 

### a1kg;lng'such mlsusc See 

### dd'alSS4-55. T)lc 

### Dcparlmtnlo[. 

### Cabor dlsaltowbd almosl$500.000 of CETA urpendll~rts by a oounly. ,@cf an Invesll~aUon rcvealipd 

### that lhoeri funds 

### had 

### not been

### uaad In a~@anw Wlh 

### lhc CmA 

### progrqtq.



### .. . ..

,OBIOIM~O~ (n kt* br wl~trtdn- 

# * II*I 

# k *r alW -ngsk 59 

### Fa& 

# w. 97.190,37.195 (19941 (r pppd ruk dWmpVpAt!w 

### PClwll-&m.W tarem b. r!bhmcnl slatua In ulllch



### . .Ihc EPA wnm (hLt It%la(* dtawr uk&Uom,of lheos. NAAgSbcfow 'the Hnal USEPA acQLpn on 1Mp ndesllputkn. .theUSEPAprow that 44 dimppnw the mdtdgmttllog mqucdl): 58 Psd. 

### W 22757 (1990) CP Rnr! NL In whlc)! EPA deruod rcddgmtbrl~ot the .Wohmorni Vlqinb' area bemum that am 'dld 'no4 mbclr+ stetulory.mrta Cbt

.. Wm4wW.to(rtblgnrml Jourwl Ir, 

### s#.*n f074@l3ME) 

### d 

### oC 

### UK' twq~thougll lhe .m'q oniy mane #dm pram rC*lW 

### ern

### w,
, ' .,Q'$ 

### pMw 'q 

### r+ ppd,~ 

### am! 

### elU)e 

### lodtMm?!onrrgwd).

. ,. . .. 

### . . :., . '\ 1I4 .8 

### . . The county 

### we'd ih.1 

### thi:

## sacr- of 

### hbor'muld 

### mi racover the mlsused funds bemuse-lhe

### Sacrebuy 

### dld'not lque

### hls llnal dthrmlnatlon

### of mlsusc 

### unUl morc 

### Ulan 120 days aRer Ihc DeparLmtnt recdvcd Lhc InlUd

### compMnL 

### suprime court 

### thus ftwd 

### the guauon 

### wtw~her ~t gat of the word 

### 'shall' In the 

### Cm stakutc prohtbllcd ihc Secretmy 

### from recovering mlaused funds after 

### Ule cwplreUon 

### of lhc 

### 120.day period. A unanlrinoUo burt concluded lhet "the me 

### use of the wrd 

### 'ehalJ"''wae not enough lo dernonslratc lhal

### Congrtsa Inlendad lo pmhlbll 

### Ule Sac- from acUng 

### antr 120 days, 

### fd a1 262. 

### In so daddln lbe Courl ehldlhat 11 

### %ouM 

### be mod rcluclanl 

# B to con 

### ude lhat

### -. 

### Callurc of an 

### agency lo oba~xvt a procadural requlruncnt 

### volds nubsequmt agency 

### acUon.' Id el 

### 2430. IhcCourl Instd

### cc3nc-ludad that "lhc nonnal hdlcla of,coongre6slonda Inhi* should d'tltnnlne 

### whetha air rrgency 

### may act afh, he ucplrallon of a ehtulory dkdllnc. See (d.a1262 

### n.9. Hem, the ..pUlloner 

### has
, not broughl lo .our eth~on 

### - bylhlng' In ihc 

### Clean Alr Acl llsclf (other 

### chw 

## he use of lhc word 

### "shdl"In 42 

### U.S.C..!i7407(d3(3)(0)), or sinythlng ln 

### ihe Acl's lcglslaUve hlslory lhat show8 the1 

### Con-

. intended for lhc EPA to lose ,lls poww lo consldu date .

broughl to Ils allcnUon alter 1htewplratlon of 1ht I&monlh dcadllne, To 

### the contrary. two .lmpor&nl asp- of lhc Clean NrAcL strongly suggest lhat 

### Congrcssdld not lntcnd tor the EPA lo 

### lose Its power lo..ael 

### Pntr 18 mgnlhe. The 

## nr~l re the Act'a tanure la 

### sptdfy a bneequcnoe tor amcompllanoc wllh lhc IS-monlh dcadllne. As lhe Suprum 

### Courl has obmved. "If,e eblutc dow not spbclfy a 

### conecq~en~ for 

### noncomp!lanac wlth slalulory 

### Umlng provllilons. the kderal courls wlll no1

### In the ordinary 

### 'course. lrnpoec thelr own aocrclvt eaneUon.' 

### Unlled Slnfesv. 

### ckunes -I 

### Gd Rd Prom,510 U.S. 43. 63 (1883). 

### &nd, lhc Clean Mr Act fiords 

# ; leu dndc

### r@y then that 

### urgtd by the pclllloncr. In 

### &rock lhc 

### Supreme Court ahled that when 

### 'U\ac 

### are leas dradb 

### nunadlea 

# 'svellabh f~r 

### fallute lo e ehlutory 

### beadllne. aourts, should not Lsumt thal 

### Con- Intended lhe agcncy lo .lose Ils .power Lo acl.' 

### Brock, 476 U.S. at 260. 

### 7ht Bmc)E kyufls cuncluston hat lhcre cxlsCad 

### s less drasUc rundy 1 \ 18 

### In (hat 

### fiec pbidcs' guldma for our present Ingully. 

### NoUng UIal 'nolhlng ln CFTA 

### appears lo bar an acUon to enforce the 120-day deadllna' 

### the Em& muri 

### concluded that anyone wllhln the alalutc'a 

### zone of Inlertstn 

### auld have broughl an acllon lo force 

### Ute Secrelaly or 

### Labor to ricl

### wflhln lhc stalutory 

### dtadllne, Id at 260

### n.7. Thus. 120 duy4 

### aft# the orlglnal complaint. lhe defendant In Bmdc 

### cauM have brought an acUan to force lhe Depwtmnk of 

### Labor b 

### drop Ils Inveallgatlon. provided lhal O1e defendant 

### muld achleve alandlng 

### by aurwnasrul@ Wlng that 

### Congrzss enacted lhe 120-day llrnlt In 'order 'lo protect grant mclpltnls 

### from lengthy ddayrr In audlls." Id Slmllerly.. 

### In lhe prcstnl cast. dlhcr Ule pcUUoner or 

### Ule Comma of Pennsyhnrnla auld have brought an acUon to enforce the 118-monlh dcadllne 

### In 42 

### U.S.C. w407(d)lS)D}.' me pcU0oner haa nol 

### called b 

### our allentlon myplmrlslon of 

### IhcClean Alr Act that would 

### have pracludcd such 

### an xtcllon. 

### Had the pcUUona bmughl such 

### . 

### m ctctbn. the mull

### wuld have been far leaa drasUc Lhm lhat whlch Ule pcUUoner now urges, which Is thc rdcdgnaUon of 

### an 

### area lhal b no1 In allalnrnent of the 'NAAF 

### . ARer oral bgurntnl. Ihc partlea have callad lo our aUenUon ceftaln 

### nno facls that 

### must be oonsldeucd. RrsG In 1995 the @PAIssued a dlracl Rnal notlce rcdwlgnatlng Mourche Parleh, Lmuklana, a8 an allalnmenl area. After the publlcallon of lhle notla, but prior 10 Itn dtdlvc dale, a monlbr raoodcd a vloletlon or lhe NAAQS 

### For wnc In the Mourche

### Pariah area. AIlhough the EPA was swam oC 

### ihle cxcxxdance, lhc EPA dld not wlihdrew lht notlot. 

### aml lhe Woumhe 

### Parimh area was rtdcsigoaiad 

### as 

### an atLalnmcn1am Tor omnc on lhc notlcc's cfCccltve dale. The pcUUoner argues lhat Chis r&lgna(lon dwnonslrales Chat 

### the EPA Is not 

### precluded fmm redasllfnaUng 

### an area lhat 4.k mn cdwumiml mUw, mu# haw bem mmwk plrrusd to Uw -kc Mum (W, 5 US.C [p1701-706. whkh enlllka eny puwnn,'rdrera)y aflbclad or lq kRency acUorruorr to Jdktal tmhw. $702. kInlw3 Ihr mlcvrrd BIAtldt pralude4 )udWal rrvkw or '4Btncy actbn b mmnWd Lo qpxy crYsmlbn by taw.' WOlbL In uh mn tnlorwrwd mdbh P anrrt *roukl haw ruWy 'aolrpd mgemcy ech unbdu3 dLhhtM or unwnnbly delayed,' W064ILEPR R3 RPE 215 566 2124 P. 10 JUL-31-1997 12:12 

### -.., ../. . 

### . . :. : _. . . .I . . 

### . 

# Mi, ' 

### yal,

# ',", &(..mi, ,..&&.. c~ceahf~cca," 

### Wr, Br. a1

### 28. 

### Allhough (he 

### pctlUoncr docs mot &tun, lo.argue Ulal these cxdanbwi wtre caud 

### .sole.by ttansporld wne, 

### ihc pttllloncr 

### malnlalnr that 6uch otone 

### plainly oonttlbulad to 

### [he 1995 

### tnoaadanca~. 

## : .See fd

### The pdllloncr +siah thel,*l~hcLi le naihlng (n 

### the 

# i tcmord 

### upon whlch the .EPA bases 

### Ite esacrmpllon that 

### boaadanoea ere allrlbulablt 

### Lioldy b ;BoUrcte 

### wnhtn the border 

### whd 

### high omnc Icvcls arc btfng &anspow Inla 

## 1.

. ' C' the hc11." 

### Id at 29, .' 

### . ' :. 

### . . . .I. 

### . . 

# ..4 r., 1';:+: ; a . .' ( 

### ,..In &pan& (jre&~~a&pl 

### bidku;~kbtifld: .'
.. 

### Ilr lmpltmenllng qulabne arqul.rc La1 EPA detQmlne 

## . .. 

### whtlhcr or not an area.

### hn~ me1 Ule NAAQS 

### and eatlsllbd 

### the Rfet crllcrlon.'tor

### radmtgnallon wlUloul 

### rqtirif la why ..'

. . 

### the WQS. 

### and Ulc crltcy!on &y not have 

### been 

### mt.' Rsp'l. Br. a1

### 30.'ln tsxne, hen, the EPA malntalnb that . ' ' 

### Ule orlgln of 

### Ulc mane lhnt caused Ule'1995 

### emxdmca . 

### . wadr 

### Icgally Imltvant. See 61.

### Fad, Reg. 

### at 19,193.19.194 

### -. (lhe 

### EPA'e 

### find rule ,,denyhg Pennayhranln'o quest lo Mcslgnate the Area). The EPA goes on, 

### howm&; to defend 

### . 

## . . 

### Ila 

### eelcnUnc analysls of the tole of hattaporled mnc Inthe 

### Area.
... 

### . , .' 

### . 

### .. In ~ur3tirn~n~ the 

## e~kh ~ntcqwh~in d"ihc 

### CI-' ~tr 

### Ad, wc 

### muet apply lhe GamlUnr.Che~m 

### anmlyalb Lo whkh we. prcvlously mkrrad. 

### Under. 

### #he 

### -anabls, 

### LC *CanIp.ces 

### hai dlr+ctfy 

### epoktn loahc.pmclac quteUbn 

### a1 Isrue. 

# ..Ole Gurl 

### ,

# .

# .must 

### glue 

### dl'd lo

### the 'unamblguoudy 

### cxpd Intent 

### or Congreu;' Cha,m 467 U.S. + 

### al 842-49. 

### U1 howtycc. 

### the "pradae'qutrrUonat 

### Issud 

### Is ohe about whlch

.. 

### Congre haa 

### bcen tllhcr..*dtnt 

### or emblguid.us," 

### thqn a

rcvlcwlng court 

### muat 

### defer to Ihe agency's oiatubry '. 

# I

. 

# 1'

. 

### . Lnterprotatlon I 

### It 1rr %fwd 

### on a+ptmrlsslblq 

### arndtmctton. '

### of the 

### n&luie? 

### kL irC 843. 

### . . 

### . .,: 

### .. . . 

### Haithe

# 'BPA mnhdr that (hc 

# CIA kr ird .l(.df ,. , 

### pmhlMLd 

### allmhnccu for 

### ozone hnlpported 

### from oulsldc 

### Lho Arks. 

### The EPA &ta 

### In, pwt, 

### on 

### 42 

### USC. dl whlch 

### provides that 

### am aUaltrmcn1 mm 

### b , . 

### one . 'ha1

. Lmcclsa 

### Ulc NAAm*. and 42
. USC.

. 

### g7ROr(d)(3)(elll),
. 

### whlch
. 

### prohlbils :. 

### the EPA

. from 

# .

redesfgnatlng 

### an arca to aUnInmtnt. unleae Ule WA 

### dtlerrnlnos hat the yea 

### *hae allalndaUlc NAAQS. 

### These

. . 

### . 8

. , ,'

. . ... ..

. . .. . . .. , . . . . . . . 

### imj&& 

## ,& l..dh .,d 

### l&d supporl (b Cht 

### EPA'e 

### hterprdallon.

. . 

### . ..?

: 

### sodii ~(ringa 

### iltbpwi the EPA*~ 

### Pgummt IS 

### furnhhcd by 0th~ 

### proYleloni of 

### the Act, ?he 

### Rret of Ultee. 

### le 42 U.S.C. 

### W51 lath), 

### whlch calabllelica 'rural 

### transport. .artas.l Th& are arw &el do not attain lhc.NAAQS 

### for ozone, .despite not pduclng any 

### sfgnlflcani amount 

### of 

### omne thrmatlvca, 

### Congrcar addnruvbd 

### the pmblan that ozone Lrensporl causes 

### ruhl lransport 

### brae by 

### qemptlng 

### such.arms 

### trom 

### ctrtaln pollullan ,

### mn.hl rcquhmmnte, 

### . providd

.that the areae 

### makc cMaln 'submlsslona to 

### the .. EPA,

. Although, 

### such amm 

### cq.

### enjoy.,relaxed '

### control ragulmhenls, 

### Lhcy must rcmaln .in

### nonalcalnment rlatus, +uae they hevc not 

### aUalnad the NAAQS for 

### omnc . I.. : 

### Cangrees also 

### wl&ees#f 

### the 

### pmblm of 

### omne 

### transport .In 42 

### U.S.C. @7511(a)(4), 

### whlch deslcrlbee 

### .on2ahl flrcumslances ' under whlch the EPA may adjust 

### a nonaltdnmcnt .area's. claseUtcaUon fe.91.. hm *scvesca b ,aserlou~"). Under thisplqvlrlon, 

### It a nonatleLnmcnt m . meeta crtlala 'xqddng 

### It dlglbtc 

### Tor adJualmcnt 

### of Ile dassll3caUon. there are d hcbra 

### .that 

### the EPA my consider 

### wheh making Lhc adJuetmenl. 

### One of lh- tacbrs la 'hc Jew4 of 

### pollullon lrsnaport bebnlhc 

### .area and other 8fCaclcd. 

### h, lndudlng bolh Intrasblc

. 

### and Interdate Iranepofl* 

### ki. Thue, 

### undtr lhb prrwlelon, the - RPA 

### my oonaldcr plludant 

### laansport.. wh& 

### adjuetlng e nonattalnmmt area's ~clssbWcaUon, but 

### pollullon hamport 

### does 

### nd affecl the timane

### demlgnation 

### aa a 

### nonattatnment arcs. . ,. .



### ... 

### AJ*ough thk

### p;mvbbn&pravldtalgntlh~~t 

### .upport 

### fo; thc EPA'r 

### Intcipntetion, wt

### nd no(, and do not, 

### go so far sa Co 

### .

### hold @at 

### . ,Me. 

### .Ch
. 

### Alr
. Act .dIctaCcs. 

### that IntcrpFcteUon. 

### For purpoatlr, It la enough 

### to 

### hold '4hbt

### evirm IC Chc AC~ wairlti 

### pcrmlt a 

### diflemi tnterprdatlon, 'lhc 

### EPA'a ' lntwp.rehUon
.

### Ie 

### plalnly .

### a 

### reaeanable one 

### to wbkh,. under 

### CheuM :wle 

### mud 

### ddw, Aocarthgly, we accept (he EPA'e podUon that.the o@ 

### of Lhc omnc (ha1 mud the 

### ~~otfr at fbuc I@ 

### legally ~lrre1cvant. 

## ma oral argument. UIC'EPA broug~ 

## tb our 

### qttcnm' ecrtaln 

### admlnlstmUve acUone Chal mud 

### bt 

### addrejaad in