Opinion ID: 196673
Heading Depth: 5
Heading Rank: 2

Heading: Standard of Performance. Section 7602(l)

Text: (ii) Standard of Performance. defines standard of performance as a requirement of continuous emission reduction, including any requirement relating to the operation or maintenance of a source to assure continuous emission reduction. 42 U.S.C. 7602(l) (1988 & Supp. III 1991). CLF argues that the conformity provision constitutes a standard of performance within the meaning of section 7602(l) because it prohibits a federal agency from supporting an activity unless that activity is consistent with 'reducing' the severity and number of violations in a nonattainment area and will not delay timely attainment of any required emission reductions. In support of its argument, CLF relies upon this court's decision in CLF, 24 F.3d 1465, to which we now turn. In that case plaintiff challenged the Federal Highway Administration's approval of a highway project on the ground, among others, that it violated the conformity provisions of the CAA. Unlike the instant case, CLF involved conformity of a transportation plan subject to section 7506(c)(3). Under section 7506(c)(3)(A)(iii), a transportation plan or program is in conformity if it contributes to annual emission reductions in amounts specified elsewhere in the CAA. Referring to  7506(c)(1) & (c)(3), the court held that [t]hese conformity requirements plainly constitute an emissions 'standard of performance.' CLF, 24 F.3d at 1477 -17- (emphasis added).2 In so holding, the court observed that those provisions mandate that defendants demonstrate that their transportation projects 'would contribute to annual emissions reductions consistent with' the levels set out in 7511a(b)(1) and 7512a(a)(7). Id. This language reveals that the court was relying on 7506(c)(3) for its finding that the conformity requirements constitute a standard of performance. See 42 U.S.C. 7506(c)(3)(A)(iii) (to be in conformity, transportation plans or programs in ozone and carbon monoxide nonattainment areas must contribute to annual emissions reductions consistent with sections 7511a(b)(1) and 7512a(a)(7)). On further reflection, it appears to us that the route to section 7506(c)(3) lies through section 7506(c)(1). In CLF, as in the case before us, plaintiffs were challenging government action in approving an activity that did not conform to an approved implementation plan or other conformity criteria. See id. at 1478. While subsection (c)(3) spells out particular conformity criteria for transportation plans, the crux of the action remained the noncompliance by a government agency, not the violation of an emission standard by the activity itself. The 2 The court also held that prior case law limiting citizen suit jurisdiction to enforcement of specific measures, commitments, and strategies for ensuring compliance with air quality standards did not preclude citizen suit jurisdiction over conformity provision claims because the requirements of the conformity provision were sufficiently specific and objective. CLF, 24 F.3d at 1477-78. While we do not disagree with that part of the analysis, we do not reach the specificity issue unless we find that the conformity provision otherwise falls within the statutory definition of an emission standard or limitation. -18- foundation of the plaintiffs' claims, both there and here, is the subsection (c)(1) prohibition of the federal agency's approval or support of any activity not in conformity with an approved plan or other standards, requirements, or milestones. As noted above, a standard of performance is defined as a requirement of continuous emission reduction . . . . 42 U.S.C. 7602(l) (emphasis added). Nothing in section 7506(c)(1) imposes an emissions reduction requirement. That section prohibits a federal agency from approving, supporting, or funding any activities that do not conform to the provisions of an SIP or other standards, emissions reduction requirements, and milestones. The sources of those standards, requirements, and milestones may include the NAAQS or standards and requirements set out in an SIP or provisions of the CAA itself. Section 7605(c)(1)(A) and (B) define what standards must be met for a project to be in conformity. In the case of a transportation plan or program, such as the one at issue in CLF, section 7506(c)(3) imposes additional standards. Thus, the conformity provision refers to or involves standards, reduction requirements, and milestones, in the sense that a federal agency must determine that a project meets those standards in order to approve or support it. However, the conformity provision itself imposes no such standards or requirements. It simply imposes a duty on federal agencies not to approve or support any activity that does not meet standards, requirements, and milestones set out in an SIP or the CAA. -19- (iii) Schedule or Timetable of Compliance. Section