Despite Rebuke, EPA May Regulate Stationary Greenhouse-Gas Emitters

by Akin Gump Strauss Hauer & Feld LLP
Contact

On June 23, 2014, in Utility Air Regulatory Group v. EPA et al., No. 12-1146 (and related cases), the Supreme Court held that the Environmental Protection Agency (EPA) may require certain greenhouse-gas emitters to install the “best available control technology” to limit the emissions of greenhouse gases (GHGs).  Although the Court held (5-4) the EPA’s more sweeping interpretation of the Clean Air Act unlawful, the Court upheld (7-2) much of EPA’s authority to require compliance with GHG standards through the Prevention of Significant Deterioration (PSD) preconstruction permitting program for stationary sources already subject to PSD. 

Background

The Clean Air Act authorizes the EPA to consider regulating any “air pollutant,” whether emitted by a stationary source (like a factory or power plant) or a mobile source (like a car).  Stationary sources capable of emitting a large amount (over 100 or 250 tons) of “any air pollutant” annually are deemed “major emitting facilities,” and may not be built or modified without a permit.  That permit is available only if a source complies “with emissions limitations that reflect the ‘best available control technology’ (or BACT) for ‘each pollutant subject to regulation under’ the Act.”  A separate permit is required for operation of certain stationary sources. 

In 2007, in Massachusetts v. EPA, 549 U.S. 497, the Court held that GHGs could be “air pollutant[s]” within the meaning of the Act, and that the EPA could regulate GHG emissions from motor vehicles if the EPA concluded that “such emissions contribute to climate change.”  After Massachusetts, the EPA so concluded.  As relevant here, the EPA also decided that because GHGs are “air pollutant[s]” in the mobile source context, they also trigger permitting requirements for stationary sources (which, as noted, apply to facilities capable of emitting a certain amount of “any air pollutant”).  Recognizing that the threshold for deeming an emitting facility “major” swept too broadly in the GHG context (likely requiring permits for office buildings, for example), the EPA “tailored” the numeric thresholds set out in the Act, opting for higher thresholds so as to avoid requiring many thousands of small sources to be regulated. 

Greenhouse-Gas Emissions Alone Do Not Trigger Permitting Requirements

Justice Scalia, writing for a five-Justice majority, first held that the EPA cannot require a permit to build, modify, or use a stationary source “on the sole basis of [the source’s] potential greenhouse-gas emissions.”  Key to his opinion was an understanding that the phrase “air pollutant” may mean different things in different portions of the Clean Air Act.  Thus, while GHGs may be “air pollutant[s]” that the EPA may consider regulating in general, that does not mean the gases are “air pollutant[s]” within the meaning of the Act’s permit-requiring provisions.  Because the emissions thresholds in the statute (e.g., 250 tons) would sweep in far too many sources, and because the EPA lacked authority to “tailor” those thresholds, the Court deemed it unreasonable to treat GHGs as the type of “air pollutant[s]” that trigger permitting requirements. 

EPA Can Require Sources Otherwise Subject to Permitting to Meet BACT Standards

The Court next held that EPA’s “decision to require BACT for greenhouse gas emitted by sources otherwise subject to [preconstruction permitting] is, as a general matter, a permissible interpretation” of the Act.  Writing for all but Justices Thomas and Alito, Justice Scalia explained that the BACT provision refers to “pollutant[s] subject to regulation under” the Act—satisfying the broad definition of “air pollutant” at issue in Massachusetts v. EPA.  Further, requiring sources already required to engage in a burdensome permitting process (because they are capable of emitting other pollutants) is not as “disastrously unworkable” as allowing GHG emissions alone to trigger that permitting in the first place.  “We are not talking about extending EPA jurisdiction over millions of previously unregulated entities,” Justice Scalia explained, “but about moderately increasing the demands [a regulator] can make of entities already subject to its regulation.”  Accordingly, the Court concluded “that nothing in the statute categorically prohibits EPA from interpreting the BACT provision to apply to greenhouse gases emitted by [these] sources,” so long as “the source emits more than a de minimis amount of greenhouse gases.” 

Too Restrictive and Not Restrictive Enough

Two groups of Justices dissented in part.  Justice Breyer, joined by Justices Ginsburg, Sotomayor, and Kagan, would have upheld the EPA’s authority to require permitting based solely on GHG emissions.  They thought it more sensible to limit the phrase “any stationary source” to “any source with the potential to emit [the threshold amount] of any air pollutant except for those sources, such as those emitting unmanageably small amounts of greenhouse gases, with respect to which regulation at that threshold would be impractical or absurd or would sweep in smaller sources that Congress did not mean to cover.” Among other things, the dissenters stated, the Court’s broader exception (of a type of pollutant rather than a type of source) undercuts the Act’s purpose of “sensible regulation of industrial emissions of those pollutants” deemed threatening to “human health and welfare.”

Justice Alito, joined by Justice Thomas, would disallow all application of BACT to GHGs.  Among other things, they reasoned that if “‘pollutant’ means ‘pollutant, other than a greenhouse gas’” for the permitting provisions, “it should mean ‘pollutant, other than a greenhouse gas” for BACT purposes, too.  “The Court’s literalism,” they added, “is selective, and it results in a strange and disjoined regulatory scheme.”

Practical Significance

  • Although the Court did not pass on “all aspects of EPA’s current approach,” its opinion appears to leave the EPA with the room it needs to achieve many of its regulatory goals.  As the Solicitor General informed the Court, “roughly 83% of American stationary-source greenhouse-gas emissions” come from sources already subject to the permitting processes, while only 3% come from sources that would otherwise be covered by the EPA’s broader approach.  Accordingly, the Court’s decision that the Clean Air Act could be read as allowing the “best available control technology” to dictate emissions standards for sources already required to obtain permits, combined with the EPA’s broad latitude to construe the Act, gives the EPA substantial room to regulate the stationary sources responsible for most stationary-source GHG emissions.
     
  • Much attention is being given to parsing Part II.B.1 of the (5-4) opinion for clues as to how the Court might rule with respect to the EPA’s ongoing development of GHG standards for existing power plants. A primary issue raised by those proposed rules is the scope of the EPA’s authority to require so-called “beyond the fenceline” emissions-reduction requirements.

    Part II.B.1 contains some suggestions from which opponents of the EPA’s proposal can take heart.  The opinion acknowledges and addresses the “fears” of some petitioners that “applying [BACT] to greenhouse gases will make it more about regulating energy use, which will enable regulators to control ‘every aspect of a facility’s operation and design, right down to the ‘light bulbs in the factory cafeteria.’”  The opinion quotes an EPA guidance document stating that “initially, compulsory improvements in  energy  efficiency will be the ‘foundation’ of greenhouse-gas BACT, with more traditional end-of-stack controls either not used or ‘added as they become more available.’”  But the opinion further notes that “there are important limitations on BACT that may work to mitigate petitioners’ concerns about ‘unbounded’ regulatory authority,” including that “EPA acknowledges that BACT may not be used to require ‘reductions in a facility’s demand for energy from the electric grid.’”  It remains to be seen how these positions will influence future GHG regulation.

 

DISCLAIMER: Because of the generality of this update, the information provided herein may not be applicable in all situations and should not be acted upon without specific legal advice based on particular situations.

© Akin Gump Strauss Hauer & Feld LLP | Attorney Advertising

Written by:

Akin Gump Strauss Hauer & Feld LLP
Contact
more
less

Akin Gump Strauss Hauer & Feld LLP on:

Readers' Choice 2017
Reporters on Deadline

"My best business intelligence, in one easy email…"

Your first step to building a free, personalized, morning email brief covering pertinent authors and topics on JD Supra:
Sign up using*

Already signed up? Log in here

*By using the service, you signify your acceptance of JD Supra's Privacy Policy.
Privacy Policy (Updated: October 8, 2015):
hide

JD Supra provides users with access to its legal industry publishing services (the "Service") through its website (the "Website") as well as through other sources. Our policies with regard to data collection and use of personal information of users of the Service, regardless of the manner in which users access the Service, and visitors to the Website are set forth in this statement ("Policy"). By using the Service, you signify your acceptance of this Policy.

Information Collection and Use by JD Supra

JD Supra collects users' names, companies, titles, e-mail address and industry. JD Supra also tracks the pages that users visit, logs IP addresses and aggregates non-personally identifiable user data and browser type. This data is gathered using cookies and other technologies.

The information and data collected is used to authenticate users and to send notifications relating to the Service, including email alerts to which users have subscribed; to manage the Service and Website, to improve the Service and to customize the user's experience. This information is also provided to the authors of the content to give them insight into their readership and help them to improve their content, so that it is most useful for our users.

JD Supra does not sell, rent or otherwise provide your details to third parties, other than to the authors of the content on JD Supra.

If you prefer not to enable cookies, you may change your browser settings to disable cookies; however, please note that rejecting cookies while visiting the Website may result in certain parts of the Website not operating correctly or as efficiently as if cookies were allowed.

Email Choice/Opt-out

Users who opt in to receive emails may choose to no longer receive e-mail updates and newsletters by selecting the "opt-out of future email" option in the email they receive from JD Supra or in their JD Supra account management screen.

Security

JD Supra takes reasonable precautions to insure that user information is kept private. We restrict access to user information to those individuals who reasonably need access to perform their job functions, such as our third party email service, customer service personnel and technical staff. However, please note that no method of transmitting or storing data is completely secure and we cannot guarantee the security of user information. Unauthorized entry or use, hardware or software failure, and other factors may compromise the security of user information at any time.

If you have reason to believe that your interaction with us is no longer secure, you must immediately notify us of the problem by contacting us at info@jdsupra.com. In the unlikely event that we believe that the security of your user information in our possession or control may have been compromised, we may seek to notify you of that development and, if so, will endeavor to do so as promptly as practicable under the circumstances.

Sharing and Disclosure of Information JD Supra Collects

Except as otherwise described in this privacy statement, JD Supra will not disclose personal information to any third party unless we believe that disclosure is necessary to: (1) comply with applicable laws; (2) respond to governmental inquiries or requests; (3) comply with valid legal process; (4) protect the rights, privacy, safety or property of JD Supra, users of the Service, Website visitors or the public; (5) permit us to pursue available remedies or limit the damages that we may sustain; and (6) enforce our Terms & Conditions of Use.

In the event there is a change in the corporate structure of JD Supra such as, but not limited to, merger, consolidation, sale, liquidation or transfer of substantial assets, JD Supra may, in its sole discretion, transfer, sell or assign information collected on and through the Service to one or more affiliated or unaffiliated third parties.

Links to Other Websites

This Website and the Service may contain links to other websites. The operator of such other websites may collect information about you, including through cookies or other technologies. If you are using the Service through the Website and link to another site, you will leave the Website and this Policy will not apply to your use of and activity on those other sites. We encourage you to read the legal notices posted on those sites, including their privacy policies. We shall have no responsibility or liability for your visitation to, and the data collection and use practices of, such other sites. This Policy applies solely to the information collected in connection with your use of this Website and does not apply to any practices conducted offline or in connection with any other websites.

Changes in Our Privacy Policy

We reserve the right to change this Policy at any time. Please refer to the date at the top of this page to determine when this Policy was last revised. Any changes to our privacy policy will become effective upon posting of the revised policy on the Website. By continuing to use the Service or Website following such changes, you will be deemed to have agreed to such changes. If you do not agree with the terms of this Policy, as it may be amended from time to time, in whole or part, please do not continue using the Service or the Website.

Contacting JD Supra

If you have any questions about this privacy statement, the practices of this site, your dealings with this Web site, or if you would like to change any of the information you have provided to us, please contact us at: info@jdsupra.com.

- hide
*With LinkedIn, you don't need to create a separate login to manage your free JD Supra account, and we can make suggestions based on your needs and interests. We will not post anything on LinkedIn in your name. Or, sign up using your email address.