Opinion ID: 187425
Heading Depth: 1
Heading Rank: 3

Heading: Clean Data Policy

Text: Under the Act, each nonattainment area must attain the NAAQS by a deadline, known as the “attainment date,” which is established by the statute itself for areas subject to Subparts 1 and 2, see CAA § 181, 42 U.S.C. § 7511, and by the EPA for areas subject only to Subpart 1, see CAA § 172, 42 U.S.C. § 19 7502(a)(2). The Act also provides that the SIP for a nonattainment area subject only to Subpart 1 must “require reasonable further progress” (RFP), id. § 7502(c)(2); the SIP for an area in moderate or a greater degree of nonattainment must provide for fixed percentage reductions of VOCs on a specified schedule. CAA §§ 182 (b)(1)(A), (c)(2)(B), 42 U.S.C. §§ 7511a(b)(1)(A), (c)(2)(B).3 In order to ensure these requirements are met, the SIP for any nonattainment area must include “contingency measures” to be implemented “if the area fails to make reasonable further progress, or to attain the [NAAQS] by the attainment date,” CAA § 172(c)(9), 42 U.S.C. § 7502(c)(9), and the SIP for a serious, severe, or extreme nonattainment area must also include “contingency measures” that will take effect automatically “if the area fails to meet any applicable milestone,” CAA § 182(c)(9), 42 U.S.C. § 7511a(c)(9). In the Phase 2 Rule, the EPA suspended the planning requirements for specified percentage reductions and contingency measures for each nonattainment area that has attained the 8-hour NAAQS but has not yet been designated an attainment area. 40 C.F.R. § 51.918. The suspension lasts “until ... the area is redesignated to attainment, at which time the requirements no longer apply; or [until the] EPA determines that the area has violated the 8-hour ozone NAAQS.” Id. The EPA 3 An area may in some circumstances substitute a combined reduction in emissions of VOCs and NOX for the fixed percentage reduction of VOCs required by CAA § 182(c)(2)(B). See 42 U.S.C. § 7511a(c)(2)(C). Although CAA § 182(b)(1)(A) applies by its terms only to an area in moderate nonattainment, and § 182(c)(2)(B) only to an area classified in serious nonattainment, § 182(c), (d), and (e) apply those requirements to areas in a greater degree of nonattainment. See id. § 7511a(c)-(e). 20 terms this suspension the “Clean Data Policy,” 70 Fed. Reg. at 71,644, because it applies when a nonattainment area produces “clean” air quality data. See Memorandum from John S. Seitz, Dir., Office of Air Quality Planning & Standards, RFP, Attainment Demonstration, and Related Requirements for Ozone Nonattainment Areas Meeting the Ozone National Ambient Air Quality Standard, at 5 (May 10, 1995), www.epa.gov/ttn/oarpg/t1/memoranda/clean15.pdf . It adopted the current version of the policy in 1995 and applied it in rulemakings specific to individual areas under the 1-hour NAAQS; it will similarly determine whether individual areas qualify for the suspension in area-specific rulemakings. 70 Fed. Reg. at 71,644-45. The NRDC contends the Clean Data Policy conflicts with both the letter and the purpose of the Act. More specifically, the NRDC argues the statutory provisions requiring a SIP to include contingency measures and percentage reductions allow no waivers for an area that has achieved the NAAQS; the only way for an area to be absolved of those requirements is to be redesignated an attainment area. See CAA § 175A(c), 42 U.S.C. § 7505a(c) (“Until [a maintenance] plan revision is approved and an area is redesignated as attainment ... the requirements of [Part D] shall continue in force and effect”). Further, the NRDC argues only its reading of the text is consistent with the intent of the Congress that, in order to ensure the air stays clean, no mandatory control requirement be lifted until a maintenance plan is in place. The EPA responds first that the NRDC did not raise before the agency and therefore forfeited its objection to the suspension of the planning requirement for contingency measures. See CAA § 307(d)(7)(B), 42 U.S.C. § 7607(d)(7)(B) (“Only an objection to a rule or procedure which was raised with reasonable specificity during the period for public comment ... 21 may be raised during judicial review”). We agree. We “enforce[] this provision strictly,” Motor & Equip. Mfrs. Ass’n v. Nichols, 142 F.3d 449, 462 (D.C. Cir. 1998) (internal quotation marks omitted), and although we allow commenters “some leeway in developing their argument before this court,” the comment must have provided “adequate notification of the general substance of the complaint,” S. Coast Air Quality Mgmt. Dist. v. EPA, 472 F.3d 882, 891 (D.C. Cir. 2006). The NRDC’s comments did not provide the EPA adequate notice that it objected to the suspension of the contingency measures. The NRDC did object to the Clean Data Policy, but only to the suspension of the requirements for an attainment demonstration and percentage reductions. The NRDC now contends it objected to the suspension of all Subpart 2 requirements, pointing to its comment that the “EPA cannot authorize states to simply drop subpart 2 measures when the area is meeting either standard. The Act allows states to move mandated controls to a maintenance contingency plan, but only after the area has been redesignated to attainment.” Comments of Clean Air Task Force et al., at 48 (Aug. 1, 2003). That comment, however, was made in the context of an objection to a different provision of the proposed rule, namely the EPA’s determination that an area not attaining the 1-hour standard but meeting the 8-hour standard need not submit a maintenance plan meeting the requirements of CAA § 175A. The EPA cannot be expected to take the NRDC’s argument, raised in support of one specific objection, and apply it sua sponte to another provision. Because the NRDC did not raise its objection with “reasonable specificity,” the Act bars us from considering it. CAA § 307(d)(7)(B), 42 U.S.C. § 7607(d)(7)(B). On the merits, the EPA maintains the Clean Data Policy does not waive the planning requirements for percentage reductions; instead, it contends, those requirements are by their 22 terms inapplicable when an area meets the applicable NAAQS. See Phase 2 Rule, 70 Fed. Reg. at 71,645/1-2, 71,646/1-2. The two planning requirements for percentage reductions are CAA § 182(b)(1), which requires an initial reduction of 15% of VOC emissions in the first six years for an area in moderate or greater nonattainment, and § 182(c)(2)(B), which requires subsequent reductions in VOC emissions averaging 3% per year for an area in serious or greater nonattainment unless an exception applies. See 42 U.S.C. § 7511a(b)(1), (c)(2)(B). As the EPA interprets these provisions, specific percentage reductions are required only as necessary to achieve attainment. We think the statute unclear as to whether those sections apply to an area that is already attaining the NAAQS. For the reasons below, we join the Tenth Circuit in holding the EPA’s interpretation is reasonable. See Sierra Club v. EPA, 99 F.3d 1551 (10th Cir. 1996). Section 182(b)(1)(A)(i) initially requires the SIP for an area in moderate or greater nonattainment to plan a total reduction in VOC emissions of 15% over six years. 42 U.S.C. § 7511a(b)(1)(A)(i). In the very next sentence, however, it elaborates that a plan should mandate “such specific annual reductions ... as necessary to attain the [NAAQS] for ozone by the attainment date.” Id. Moreover, each percentage reduction is linked to the requirement that an area make “reasonable further progress” toward attainment. See id. § 7511a(b)(1) (entitled “Plan provisions for reasonable further progress”); id. § 7511a(c)(2)(B) (entitled “Reasonable further progress demonstration”). “Reasonable further progress,” in turn, means “such annual incremental reductions in emissions ... as are required ... for the purpose of ensuring attainment.” CAA § 171(1), 42 U.S.C. § 7501(1). The Act is therefore ambiguous as to what reductions are required when no further progress toward 23 attainment is necessary — or, for that matter, possible. The EPA reasonably resolved this ambiguity by concluding the specific percentage reductions are simply inapplicable in that circumstance. As the Tenth Circuit put the matter, “If a moderate ozone nonattainment area has in fact already attained the ozone standard, it would make little sense to require a state to demonstrate the area will make reasonable progress toward attainment.” Sierra Club, 99 F.3d at 1557. The EPA’s reasoning disposes as well of the NRDC’s contentions that the Clean Data Policy unlawfully circumvents the redesignation requirements, CAA § 107(d)(3)(E), 42 U.S.C. § 7407(d)(3)(E), violates the mandate that all Part D requirements remain in force until an area has an approved maintenance plan in place, CAA § 175A(c), 42 U.S.C. § 7505a(c), and disregards the Supreme Court’s admonition that the EPA cannot “render Subpart 2’s carefully designed restrictions on EPA discretion utterly nugatory,” Whitman v. Am. Trucking Ass’ns, 531 U.S. 457, 484 (2001). The Clean Data Policy does not effect a redesignation; an area must still comply with the statutory requirements before it can be redesignated to attainment. Furthermore, Part D — including Subpart 2 — remains in force insofar as it applies but, as we have just seen, the EPA has reasonably concluded the provisions of the Act requiring percentage reductions do not apply to an area that has attained the NAAQS.