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Table of Contents

Chapter 1: Introduction

Introduction .................................................................1

What is the purpose of this document? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1

The Clean Air Act . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3

What is the Clean Air Act? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3

What are the National Ambient Air Quality Standards? ..........................5

Tribal Air Programs and TIPs . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7

Under what authority can Indian tribes adopt Clean Air Act programs? .............7

How does EPA determine whether an Indian tribe is eligible under the CAA to be treated

in the same manner as a state? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 8

" Request for determination of eligibility? ..........................8

What is air quality management? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 10

How does a tribe start managing air quality? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 11

What is a TIP and how does it fit into a tribal air program? . . . . . . . . . . . . . . . . . . . . . . 13

What are the benefits of developing a TIP? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 15

How does a tribe build the capability to develop a TIP? . . . . . . . . . . . . . . . . . . . . . . . . . 16

What if your tribe chooses not to develop a TIP? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 17

Conclusion . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 18

Endnotes . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 18

Chapter 2: Characteristics of Implementation Plans

Characteristics of Implementation Plans . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 21

Implementation Plan Basics . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 21

What is an Implementation Plan? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 21

How do TIPs compare to SIPs? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 22

" TIPs are optional . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 22

" TIPs are modular . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 22

" TIPs have flexible submission schedules . . . . . . . . . . . . . . . . . . . . . . . . . 23

" TIPs allow for joint tribal and EPA management . . . . . . . . . . . . . . . . . . 23
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Where are the Statutory and Regulatory Requirements for a TIP? . . . . . . . . . . . . . . . . . 24

Developing a TIP . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 25

What technical information do you need to develop a TIP? . . . . . . . . . . . . . . . . . . . . . . 25

" Emissions Inventory . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 25

" Air Quality Monitoring . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 25

What are the potential elements in a TIP? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 26

" Maintenance Strategy (for areas that attain the NAAQS or are

unclassificable) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 26

" Attainment Strategy (for areas that are in nonattainment for the 

NAAQS) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 27

" Source Preconstruction Permit Programs . . . . . . . . . . . . . . . . . . . . . . . . 29

" Regional Haze Plans . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 29

What elements must accompany a TIP? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 30

Conclusion . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 30

 Endnotes . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 31

Chapter 3: Goal Setting & Data Gathering for a TIP

Goal Setting & Data Gathering for a TIP . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 33

Air Quality Designations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 34

How is air quality classified in relationship to the NAAQS? . . . . . . . . . . . . . . . . . . . . . 34

" Attainment Areas . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 35

" Nonattainment Areas . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 35

How are air quality areas determined? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 36

Air Quality Goals . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 38

What should be considered in setting air quality goals for your TIP? . . . . . . . . . . . . . . . 38

What are some typical initial air quality goals? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 39

How can nonattainment areas be redesignated as attainment areas? . . . . . . . . . . . . . . . . 40

What if you want to set standards more stringent than the NAAQS? . . . . . . . . . . . . . . . 41

Developing An Emissions Inventory . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 41

What is an emissions inventory? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 41

How can an emissions inventory be useful to your tribe? . . . . . . . . . . . . . . . . . . . . . . . . 41

Are there any regulations governing the tracking and reporting emissions? . . . . . . . . . . 42

What types of emissions inventories are there? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 42

What is an Inventory Preparation Plan? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 43

How does your tribe start creating an emissions inventory? . . . . . . . . . . . . . . . . . . . . . . 44
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Developing An Air Quality Monitoring Program . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 45

What is an air quality monitoring program? Does your Tribe need one? . . . . . . . . . . . . 45

What should a monitoring program achieve? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 46

How does the tribe report and use the data? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 47

How does your tribe start an air quality monitoring program? . . . . . . . . . . . . . . . . . . . . 48

Conclusion . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 48

Endnotes . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 49

Chapter 4: Potential TIP Program Elements

Potential TIP Program Elements . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 53

Maintenance Strategies . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 54

What is a maintenance strategy? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 54

What are the basic steps for developing a maintenance strategy? . . . . . . . . . . . . . . . . . . 54

" Establish enforceable emission limits . . . . . . . . . . . . . . . . . . . . . . . . . . . 54

" Write enforceable regulations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 55

" Prevent downwind NAAQS violations . . . . . . . . . . . . . . . . . . . . . . . . . . 56

" Create an appropriate compliance schedule . . . . . . . . . . . . . . . . . . . . . . . 56

What can be done about new sources of emissions? . . . . . . . . . . . . . . . . . . . . . . . . . . . . 56

How does your tribe start creating a maintenance strategy? . . . . . . . . . . . . . . . . . . . . . . 57

Attainment Strategies . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 58

What is an attainment strategy? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 58

What are the basic steps for developing an attainment strategy? . . . . . . . . . . . . . . . . . . 58

" Ascertain the effect of emissions from sources outside the TIP area . . . 59

" Determine the necessary emission reductions . . . . . . . . . . . . . . . . . . . . . 60

" Identify appropriate control measures . . . . . . . . . . . . . . . . . . . . . . . . . . . 61

" Write enforceable regulations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 64

" Prevent downwind NAAQS violations . . . . . . . . . . . . . . . . . . . . . . . . . . 64

" Create an appropriate schedule for emission reductions . . . . . . . . . . . . . 65

" Develop appropriate contingency measures . . . . . . . . . . . . . . . . . . . . . . 65

What can be done about new sources of emissions? . . . . . . . . . . . . . . . . . . . . . . . . . . . . 66

How does your tribe start creating an attainment strategy? . . . . . . . . . . . . . . . . . . . . . . . 66

Source Preconstruction Permits . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 67

What is New Source Review? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 67

What is the nonattainment NSR program? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 69

What is the PSD permitting program? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 70

What is minor NSR? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 74

How does your tribe start creating a preconstruction permit program? . . . . . . . . . . . . . 74
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Regional Air Quality . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 75

Why is regional air quality important? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 75

What is haze? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 76

What has the EPA done to improve and protect visibility? . . . . . . . . . . . . . . . . . . . . . . . 77

How can your tribe improve and protect visibility? . . . . . . . . . . . . . . . . . . . . . . . . . . . 77

" Regional Planning Organizations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 78

" Regional Haze Plans . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 79

An example of collaboration to address regional haze . . . . . . . . . . . . . . . . . . . . . . . . . . 79

Can EPA intervene in regional air quality problems? . . . . . . . . . . . . . . . . . . . . . . . . . . . 80

Conclusion . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 81

Endnotes . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 81

Chapter 5: Compliance & Enforcement for a TIP

Compliance & Enforcement for a TIP . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 85

 Measuring & Reporting Emissions . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 86

Which emission measurement techniques must the tribe require? . . . . . . . . . . . . . . . . . 86

" Indirect measurement . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 86

" Periodic direct measurement . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 87

" Continuous direct measurement . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 87

How can visible emissions (opacity) be monitored? . . . . . . . . . . . . . . . . . . . . . . . . . . . . 88

Which procedures for reporting and record-keeping must the tribe require? . . . . . . . . . 88

How does a tribe start measuring emissions? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 89

How does a tribe include measuring and reporting in your TIP? . . . . . . . . . . . . . . . . . . 89

Developing an Enforcement Program . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 90

Why is an enforcement program needed? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 90

What are the elements of an enforcement program? . . . . . . . . . . . . . . . . . . . . . . . . . . . . 90

How is tribal enforcement authority established for a TIP? . . . . . . . . . . . . . . . . . . . . . . 91

What enforcement actions must your tribe be prepared to take? . . . . . . . . . . . . . . . . . . . 91

Are there any occasions that warrant exceptions to enforcement actions? . . . . . . . . . . . 93

Must your tribe possess criminal enforcement authority? . . . . . . . . . . . . . . . . . . . . . . . . 94

Does EPA have enforcement power on reservations? . . . . . . . . . . . . . . . . . . . . . . . . . . . 94

How does a tribe start developing an enforcement program? . . . . . . . . . . . . . . . . . . . . . 95

Conclusion . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 95

Endnotes . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 95
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Chapter 6: TIP Adoption & Submission

TIP Adoption & Submission . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 99

Adopting Your TIP . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 99

What is public outreach and how does your tribe prepare an outreach strategy? . . . . . . 99

What kind of information can your tribe provide to interested parties to enhance their

ability to participate in the TIP development process? . . . . . . . . . . . . . . . . . . . 102

Whom should you try to reach with the outreach strategy? . . . . . . . . . . . . . . . . . . . . . 102

How can your tribe effectively communicate with all interested parties? . . . . . . . . . . . 103

What are the minimum requirements for notice and public hearings? . . . . . . . . . . . . . 104

Are there other consultation requirements? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 106

How does your tribal government formally adopt the TIP? . . . . . . . . . . . . . . . . . . . . . 106

Submitting Your TIP to EPA for Approval . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 107

What needs to be submitted to EPA along with the TIP? . . . . . . . . . . . . . . . . . . . . . . . 107

What does EPA do after your tribe has submitted your TIP? . . . . . . . . . . . . . . . . . . . . 109

Revising Your Approved TIP . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 109

Why would your TIP need revising once it has been approved? . . . . . . . . . . . . . . . . . . 109

Conclusion . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 110

 Endnotes . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 110

Appendices

Appendix A: Tribal Contacts at EPA . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . A-1

Appendix B: Informational Resources . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . B-1

Appendix C: Education and Training Resources . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . C-1

Appendix D: Information on Criteria Pollutants . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . D-1

Appendix E: A Guide to Regional Air Quality Planning Organizations . . . . . . . . . . . . . . . . E-1

Appendix F: Emissions Inventories . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . F-1

Appendix G: Air Quality Monitoring . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . G-1

Appendix H: TIP Enforceability Checklist . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . H-1

Appendix I: Procedures for Reclassification to Class I . . . . . . . . . . . . . . . . . . . . . . . . . . . . . I-1

Appendix J: Regulation Development . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . J-1

Appendix K: TIP Completeness Checklist . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . K-1

Appendix L: Review of Authorities Available for Tribal Air Program Financial 

Assistance Grants . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . L-1

Acronym List . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Acronym List -1

Glossary . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Glossary-1