Opinion ID: 2685304
Heading Depth: 2
Heading Rank: 4

Heading: Final FIP

Text: The EPA promulgated its final FIP for the Plant on August 24, 2012. It found that it was necessary or appropriate to “require[e] [the Plant] to meet new emission limits for NOx and PM.” 77 Fed. Reg. at 51621. The FIP required PM emissions from Units 4 and 5 to be limited to 0.015 pounds per million British thermal units (lbs/MMBtu). See Federal Implementation Plan Provisions for Four Corners Power Plant, Navajo Nation, 40 C.F.R. § 49.5512(i)(1) (2013). It allowed the Plant a choice of how to meet NOx requirements; the Plant could either (1) add postcombustion controls on all units within the next five years to meet a limit of 0.11 lb/MMBtu, or (2) close Units 1–3 by January 1, 2014, and reduce NOx emissions on Units 4 and 5 to 0.098 lb/MMBtu by July 31, 2018. 10 See id. The EPA made a finding that the alternative proposed by APS, which included closing Units 1–3, would “result in greater visibility improvement in surrounding Class I areas at a lower cost” than the original BART proposal. Final FIP, 77 Fed. Reg. at 51621. The EPA also evaluated reductions in emissions of other pollutants that would be achieved under the two options. Under Option 1, the EPA’s proposed BART, the EPA calculated that mercury emissions would drop from 594 lb/yr to 340 lb/yr, a decrease of approximately 43%. Under Option 2, the alternative proposed by APS, the EPA calculated that mercury emissions would drop even further—to 233 lb/year, a decrease of approximately 61%. The EPA did not estimate decreases in selenium directly, but the EPA’s regulations allow facilities to measure total filterable PM as a surrogate for nonmercury metals, such as selenium.6 The EPA estimated that under Option 1 total PM emissions would fall from 1,564 tons per year to 1,179 tons per year, a decrease of 25%, whereas under Option 2 total PM emissions would fall from 1,564 tons per year to 886 tons per year, a decrease of approximately 43%. The EPA also responded to comments it had received, including the WildEarth comment that it needed to consult under the ESA. It said: 6 See National Emission Standards for Hazardous Air Pollutants from Coal- and Oil-Fired Electric Utility Steam Generating Units and Standards of Performance for Fossil-FuelFired Electric Utility, Industrial-Commercial-Institutional, and Small IndustrialCommercial-Institutional Steam Generating United (MATS Rule), 77 Fed. Reg. 9304, 9367–68 (Feb. 16, 2012). 11 EPA disagrees with the commenter that determining BART and promulgating this FIP for [the Plant] necessitates ESA Section 7 consultation. EPA understands that the U.S. Fish and Wildlife Service (FWS) is primarily concerned about the effects of mercury and selenium on endangered fish species in the San Juan River. EPA notes that under the BART Alternative [Option 2], mercury and selenium emissions will be reduced from [the Plant] due to the closure of Units 1–3. Additionally, EPA’s national [Mercury Air Toxics Standards (MATS)] rule set new emission limits for mercury that would apply to Units 1–3 at [the Plant] if those units continue operation. EPA further notes that the goal of the Regional Haze Rule is to reduce emissions of visibility-impairing pollutants in order to restore visibility to natural conditions at the mandatory Federal Class I areas, and mercury and selenium do not affect visibility. Therefore, EPA does not have authority to regulate emissions of mercury or selenium under BART. Final FIP, 77 Fed. Reg. at 51643–44. WildEarth filed a petition for review on October 22, 2012.7 APS elected Option 2 of the FIP, shutting down Units 1–3 on December 30, 2013.