Opinion ID: 509274
Heading Depth: 2
Heading Rank: 1

Heading: EPA's Duty Under Section 126(b)

Text: 18 EPA has interpreted Sec. 126(b) as requiring that four elements be met before relief will be provided. Those elements are: (1) Section 126(b) provides relief with respect to only those pollutants for which National Ambient Air Quality Standards have been set or PSD or visibility measures required; (2) Section 126(b) provides redress for violations alleged to have occurred in specified geographic areas; (3) Section 126(b) provides relief with respect to interstate pollution that results in the violation of an NAAQS or PSD increment, or interferes with required SIP measures to protect visibility; and (4) Where an NAAQS or PSD increment or proscribed visibility impairment occurs, the out-of-state source or sources must make a significant contribution to the levels of pollution causing that violation or impairment. 49 Fed.Reg. 34,856-58. 19 Petitioners argue that Sec. 126(b) provides a statutory mechanism to implement an affirmative duty, created by Sec. 110(a)(2), to review existing SIPs to determine whether the SIPs are adequate to prevent impermissible interstate impacts. Specifically, Petitioners contend that the filing of their section 126(b) petitions immediately obliged EPA to take the investigatory steps necessary to determine whether the SIPs in all named upwind states were in compliance with Sec. 110(a)(2)(E). 20 Section 110(a)(2)(E) prescribes substantive standards against which the interstate impacts of SIPs must be judged. The Administrator contends that his responsibility to evaluate SIPs for compliance with Sec. 110(a)(2)(E) is linked to his review of an otherwise required submission by a state. In other words, the Administrator contends that Sec. 110(a)(2)(E) does not require reevaluation and revision of existing SIPs, and that a section 126(b) petition does not trigger such review. We agree. 21 Petitioners' argument centers on the contention that the substantive inquiry under Sec. 126(b) is the same as that under Sec. 110(a)(2). See Connecticut v. EPA, 656 F.2d 902, 907 (2d Cir.1981). If indeed it is the same substantive inquiry, and we will assume for these purposes it is, then the language of Sec. 126(b) supports the Administrator's interpretation of Sec. 110(a)(2)(E). 22 The language of Sec. 126(b) is quite specific and focuses on major sources, not the validity of a state's SIP: Any State or political subdivision may petition the Administrator for a finding that any major source emits or would emit any air pollution in violation of the prohibition of section 7410(a)(2)(E)(i) of this title. 42 U.S.C. Sec. 7426(b) (emphasis added). The elements EPA has derived from Sec. 126(b) are reasonable and therefore, this Court will not disturb EPA's interpretation. Chevron U.S.A., Inc. v. NRDC, 467 U.S. 837, 104 S.Ct. 2778, 81 L.Ed.2d 694 (1984). 23 Congress specified that the Administrator take final action on a section 126(b) petition very quickly: Within 60 days after receipt of any petition under this subsection and after public hearing, the Administrator shall make such a finding or deny the petition. 42 U.S.C. Sec. 126(b) (emphasis added). Under Petitioners' theory, once a section 126(b) petition has been filed, the Administrator would be required to engage in an entire array of investigative duties. In particular, the Administrator would be required to undertake a full-scale investigation of the adequacy of the SIPs of all states named in the petition for all pollutants involved, to conduct whatever data-gathering and research is necessary to either prove Petitioners' claims or affirmatively disprove their allegations, and to develop whatever new air pollution models are necessary to confirm or affirmatively disprove Petitioners' modeling theories, as well as conducting a public hearing, analyzing the evidence presented by all interested parties, proposing a determination, considering all comments submitted and promulgating a final rule--all within 60 days of receipt of the petition. 2 It is reasonable to conclude that Congress did not intend that the Administrator be required to perform all these duties in such a short period of time in the absence of the clearest expression. See Chevron, 467 U.S. 837, 104 S.Ct. 2778. 24 In addition, the language of Sec. 110(a)(2) resists Petitioners' interpretation and conversely, lends support to the Administrator's. Section 110(a)(2) contains no language expressly directing the Administrator to reevaluate existing SIPs. When Congress has intended to establish a requirement for direct EPA action it has said so. In 1977, Congress explicitly ordered the promulgation of EPA regulations addressing a variety of matters, including new source performance standards, noncompliance penalties, stack height credit, and visibility protection requirements. 42 U.S.C. Secs. 7411(f), 7420(a), 7423(c), 7491(a)(4). The statute also directs EPA to undertake other actions, including periodic reassessments of existing ambient standards and new source performance standards. See 42 U.S.C. Secs. 7409(d)(1), 7411(b)(1)(B). 25 In one instance Congress specifically directed EPA to investigate the adequacy of existing SIPs. Section 124 of the Act, which is entitled Assurance of adequacy of State plans, expressly requires EPA to review the adequacy of existing plans with regard to dependence by major fuel burning sources on petroleum products and natural gas. 42 U.S.C. Sec. 7424. That section, unlike Sec. 110(a)(2)(E), sets up a procedure for accomplishing the task. Again, where Congress wanted EPA to review the adequacy of existing SIPs, it said so. Against that backdrop, Congress' silence in Sec. 110(a)(2)(E) is significant. 26 Not only is Sec. 110(a)(2)(E) itself devoid of any requirement for direct action by the EPA, but the legislative history is similarly barren. If any Congressional intent can be divined from this silence, it must be an intent not to require affirmative action. If Congressional intent cannot be determined then we must defer to EPA's construction of the statute so long as it is a permissible one. Chevron, 467 U.S. 837, 104 S.Ct. 2778. 27 Petitioners attempt to rely on Sec. 406(d)(2) (which is not codified) of the 1977 Amendments, 42 U.S.C. Sec. 7401 (note), as the basis for an independent duty to review all existing SIPs and require revisions where necessary to conform to Sec. 110(a)(2)(E). They argue that Sec. 406(d)(2) required that within one year of enactment of the 1977 Amendments, the states had an obligation to revise their SIPs in accordance with Sec. 110(a)(2)(E). The Administrator contends, and again we agree, that Sec. 406(d)(2) only sets the timetable for actions to revise an SIP by reason of any amendment made by this Act. Section 406(d)(2) itself creates no independent obligation to revise an SIP; it merely addresses the timing of SIP revisions separately required by other provisions of the 1977 Amendments. See generally Sierra Club v. EPA, 719 F.2d 436, 469 (D.C.Cir.1983). Section 406(d)(2) provides no support for Petitioners' argument. 28 The Administrator's review of various SIP revisions submitted by states is an ongoing process, and under the Administrator's interpretation the prohibition of Sec. 110(a)(2)(E) is one of the requirements that must be met before he can approve any initial SIP or revision. Because the Administrator's construction of Sec. 110(a)(2) is consistent with the plain language of that provision and is a reasonable one, this Court must accept it. Chemical Mfrs. Ass'n v. NRDC, 470 U.S. 116, 105 S.Ct. 1102, 84 L.Ed.2d 90 (1985); Chevron, 467 U.S. 837, 104 S.Ct. 2778.