The Clean Air Act
The Clean Air ActHistory, Overview and StructureJames “Skip” SpensleySpensley & Associates
The CavemanARE YOU SUREIT’S NOTEMITTINGGREENHOUSEGASES?Mummified bodies from the Paleolithic era
Ancient Rome
SMOG1306 King Edward I1873 London 268 deaths1909 Glasgow 1,000 deaths
1952 London
United States1881 Chicago & CincinnatiLate 1940’s in L.A.1928 New York City1939 St. Louis1970 Denver
Donora, PennsylvaniaDonora 20 deaths
Our Federal System of Laws Apply nationallySupremacy over state & local lawsEmpowers and funds state & local authoritiesLimitations on federal power:– Federalism– Due Process– Equal Protection– Prohibition on Takings– Administrative Procedures Act
Role of Federal GovernmentLegislative BranchEnacts the LawsMakes overall policyExecutive BranchPromulgates the regulationsMakes program policyJudicial BranchInterprets the law & regulationsTailors policy to specific cases
Legislative Branch: U.S. Congress
Congressional CommitteesEnvironmental ResponsibilitiesU.S. House of RepresentativesAgricultureCommitteeFIFRA, BiofuelsWays & MeansCommitteeEnvironmentalTax incentivesCommerceCommitteeCAA, TSCA, NEPAScienceCommitteeEnvironmental R&DNatural Res.CommitteePublic WorksCommitteeESA, F&WCACWA, 1899 Refuse ActU.S. SenateAgricultureCommitteeFIFRA, Biofuels,PesticidesEnvironmentCommitteeCAA, TSCA, NEPA,RCRA, CERCLA, SDWAScienceCommitteeEnvironmental R&D
Legislative Processing Bill passed by CongressReported in the Congressional RecordSigned by PresidentReported as– Statutes-at-Large e.g. 83 Stat. 852 (1969)– Public Law e.g. P.L. 91-190– Slip laws United States Code e.g. 42 U.S.C. § 4321 et seq
Executive Branch ImplementingWriting RegulationsAdministrative Procedures Act governs Agency proposal as draft regulation Notice published in the Federal Register Comments requested and received Final regulation published in FR Reported in Code of Federal Regulationse.g. 40 C.F.R. §1500 et seq.
Executive BranchEnvironmental ResponsibilitiesPresidentWhite HouseOfficeOverall PolicyCouncil onEnvironmentalQualityEnvironmental PolicyDepartment ofHealthOffice ofManagementand BudgetEnvironmental BudgetHealth policyEnvironmentalProtection AgencyDepartment ofJusticeDepartment ofInteriorDepartment ofStateCAA, CWA, RCRA,CERCLA, TSCAEnvironmentalLitigationESA, F&WCAEnvironmental treatiesDepartment ofCommerceDepartment ofAgricultureDepartment ofDefenseESA, MMPAFIFRACWA - COEDepartment ofEnergyNuclear mat’ls
Judicial Branch(Federal)
Early Responses to Air Pollution Avoidance – zoning of industrial properties Nuisance lawsuits– Private– Public Award of damages or injunctions Local/State control laws & fines DEATH by order of the KING
Earth Day 1970
Congressional AttentionThe Environmental Decade
Clean Air Act Most complex environmental statute– Relies upon the scientific understanding of the causesand effects of air pollution.– Melds past state attempts and different legalapproaches of 50 states to controlling air pollution.– Depends upon cooperation among all levels ofgovernment and among the states.– Doesn’t conform to governmental boundaries.– Relies on continuously changing technology.
3 kinds of Environmental StandardsAir Ambient standards (NAAQS)EmissionStandardsTechnology dsWasteWater quality standardsLand Disposal Standards
Federal Legislation1 1955 – Air Pollution Control Act1960 – Motor Vehicle Exhaust Study Act1963 – The Clean Air Act of 19631965 – Motor Vehicle Air Pollution Control Act1967 – The Air Quality Act1970 – The Clean Air Act Amendments 19701977 – The Clean Air Act Amendments 19771990 – The Clean Air Act Amendments 19901History of Air Pollution Legislation in the United States, Arthur C. Stern
Clean Air Act Context Creation of Environmental Protection Agency– By Reorganization Plan #3 proposed by President Nixon– Consolidated three federal departments Interior, HEW and FDA Philosophy of early environmental legislation– Shift from resources protection to “Environmentalism”– Relied on Command & Control, not market forces– Use of “health-based” ambient standards Federal Government role v. State Responsibilities– Fed set standards, specified requirements and policies– Required States to develop the plan (SIP) to achieve
CAA Structure TITLE I - PROGRAMS AND ACTIVITIESPart A: Air Quality and Emission LimitationsSection 107 - Air Quality Control RegionsSection 108 - Air Quality Criteria & ControlSection 109 - Ambient Air Quality StandardsSection 110 - State Implementation PlansSection 111 - Stationary Source StandardsSection 112 - Hazardous Air PollutantsSection 113 - Federal Enforcement TITLE II - Mobile Source StandardsTITLE III – General ProvisionsTITLE IV – Acid Deposition ControlTITLE V - Operating PermitsTITLE VI – Stratospheric OzonePresident Nixon signing CAA
CAA PollutantsCRITERIA POLLUTANTSAttainmentNon-attainmentExisting SourcesHAZARDOUS AIR POLLUTANTSNESHAPS (40 C.F.R. Part 61)ArsenicAsbestosBenzeneBerylliumCoke OvensRACTRACTNew Major SourcesMajor ModificationsMercuryVinyl Chloride Radionuclides189 HAPs from 1990 AmendmentsSource categories listedBACTLAERControl Technology RequirementsMACT standards promulgated-6Residual risk study 1x 10
Criteria PollutantsCommonly found air pollutants Sulfur Oxides (SO2)Particulate Matter (PM10, PM2.5)Carbon Monoxide (CO)Ozone (Photochemical Oxidants)Nitrogen Dioxide (NOx)Lead
Setting Ambient Standards EPA & States established 247 Air Quality ControlRegions based on State boundaries and air basins EPA provided Air Quality Criteria for MajorPollutants and Control Technology Information EPA adopts National Ambient Air Quality Standards(NAAQS) States prepare State Implementation Plans (SIPs) toachieve NAAQS EPA reviews and revises State ImplementationPlans (SIPs) – can adopt a Federal Plan if needed EPA oversees and States enforce SIPs
SIP Content Requirements Achieve attainment of NAAQS by deadline Establish enforceable Emission Limitations, Schedulesof Compliance and other Controls Set Monitoring and Reporting Requirements Enforcement, Permit Programs, PreconstructionReview and Operational Controls Ensure Non-interference with other State Plans Provide Adequate Administrative Resources Implement Motor Vehicle Inspections and Testing Intergovernmental Consultation & Public Notification Schedule for Periodic Revisions Collect permit Fees
SIP Compliance Strategies Permits and Preconstruction ReviewStationary Source LimitationsVehicle Emission Limitations and InspectionsLocal Transportation Controls (RAQC reports)Indirect Source Regulation (State only)Sanding and Sweeping ProgramsArea source limitations and incentives
CAA ApplicabilityEmissions: 5 -100 tpyState only limits (but mayhave fed limits if ozone is problem)Emissions: 5 tpyNo State orFederal limitsTpy: Tons per yearEmissions: 100 tpyFederal CAA and State limits
Technology Control RequirementsATTAINMENT AREAEXISTINGSOURCESNEWSOURCESNONATTAINMENT AREARACTRACTBACTLAER(Reasonably Available Control Technology)(Best AvailableControl Technology)(Lowest AchievableEmissions Rate)
CAA Programs forCriteria Pollutants New Source PerformanceStandards (NSPS) Attainment Program forNon-Attainment areas Prevention of SignificantDetermination (PSD) programfor Attainment areasNewSourceReview(NSR)
New Source Performance StandardsApply to specific listed industries(40 C.F.R. PART 60, examples)Fossil-fuel fired steam generatorsElectric utility steam generating unitsIndustrial-commercial steam generating unitsIncineratorsPortland Cement plantsNitric acid plantsSulfuric acid plantsAsphalt concrete plantsPetroleum refineriesVolatile organic liquid storage vessels
Attainment ProgramPermit Conditions for Non-Attainment Areas Net Reduction and Reasonable FurtherProgress Lowest Achievable Emission Rate (LAER) All Other Sources in Compliance Non-interference with SIP Implementation Analysis of Alternatives
Prevention of SignificantDeterioration Program that applies to Attainment areas andunclassified areas. The PSD program goals are:– Avoid new non-attainment areas by ensuringeconomic growth in harmony with existing clean air;– protect public health and welfare from any adverseeffects;– preserve and enhance the air quality in national parksand other areas of special natural recreational, scenic,or historic value.
PSD Area Classifications CLASS I AREAS– National Parks– National Wilderness Areas– National Monuments CLASS II AREAS Everywhere else CLASS III AREAS Specially Designated IndustrialDevelopment Areas
PSD Program Source Categories(40 C.F.R. Section 52.21)Fossil fuel-fired steam electric plants 250 mmBTU/hrCoal cleaning plantsKraft pulp millsPrimary zinc smeltersIron and steel mill plantsPrimary aluminum ore reduction plantsPrimary copper smeltersMunicipal incinerators 250 tons of refuse per dayHydrofluoric acid plantsNitric acid plantsPetroleum refineries
PSD Construction Requirements Permit issued Proper Review of Permit Conducted, Required AnalysisPerformed and Public Comment Allowed Demonstration that Emissions Won’t Exceed Increment,NAAQS or other Applicable Requirement Use of Best Available Control Technology Special Class I Provisions Complied With Analysis of Impacts of Related Growth Agreement to Conduct Monitoring to Assess Impact ofEmissions
Hazardous Air Pollutants Prior to 1990 Amendments, Section 112 requiredlisting potential HAPs and performing a risk analysisprior to control In 20 years, only eight NESHAPs were promulgated.––––ArsenicBenzeneMercuryVinyl chloride-Asbestos-Beryllium-Radionuclides- Coke oven emissions
Listing of HAPs Listed 190 new HAPs (187) Directed EPA to list source categories Applies to Major Sources– 10 TPY for any one HAP– 25 TPY for combination of HAPs Application of “MACT”-6 Residual risk 1 x 10
MACT Strategies “MACT” is the maximum achievable controltechnology– Work practice standards– Design, equipment, work practice or operationalstandards– Strategies include:––––––Reduce volumeSubstitute materialsClosed systemsCollect, capture or treat emissionsCertification & training of facility operatorsCombination of above
MACT Source Categories(Examples) Dry Cleaning Aerospace Industry Wood Furniture Petro Refineries Magnetic Tapes Coke OvensPolymers and ResinsCommercial Sterilizers Gasoline Distribution Oil and Gas Operations Rubber tire manufacturePrinting and Publishing IndustryOff-Site Waste/Recovery OpsChromium ElectroplatingOperationsHazardous Organic NESHAPMarine Vessel LoadingOperationsHazardous Waste CombustionHalogenated Solvent CleaningSecondary Lead SmeltersWood furniture
TITLE V: Operating PermitsTITLE IVACID RAINTITLE INONATTAINMENTEXISTINGSIP PROGRAMTITLE VTITLE IIIAIR TOXICSPERMIT PROGRAMTITLE VIIENFORCEMENTSTATEPERMITPROGRAM
TITLE V Permit Contents Each permit must include:Applicable emission limitations and standards;Monitoring, recordkeeping & reporting requirements;A severability clause ;a statement that the permit may be modified,revoked, etc. for cause; and– a provision to insure the source pays fees.–––– The permit must “specifically designate (thoseprovisions) as not being federallyenforceable e.g. any terms and conditions. notrequired under the Act” (State-onlyrequirements)
Acid Deposition Control 10 Million tons SOx reduction by 2000– First 5 Million by 1995 (Phase I) 2 Million tons reduction of NOx from projectedYear 2000 levels 110 Specific Utility Plants identified Phase I Nationwide reduction in Phase II Emission allowance trading to reduce costs andprovide for future growth Clean Coal Technology encouraged
Stratospheric Ozone Protection 1990 Amendments established a program for the phaseout of ozone depleting substances (ODSs) generallyresponsive to the Montreal Protocol. Two classes of substances were defined: Class I substances - chlorofluorocarbons (CFCs), halons, carbontetrachloride, methyl chloroform Class II substances - hydrochlorofluorocarbons (HCFCs) Beginning in 1991, it is unlawful for any person toproduce any Class I substance in an annual quantitygreater than percentages specified in the Act.– Exceptions are provided for “essential uses” e.g. methyl bromidefor agricultural purposes.
Stratospheric Ozone Protection Beginning in 2000, all production of Class I substanceswas prohibited with certain exceptions. A complete phase-out of the use and production of ClassII substances is required by 2030. Pursuant to regulations (40 C.F.R. Part 82), theproduction of all CFCs, methyl chloroform and carbontetrachloride were eliminated on January 1, 1996. For HCFCs, a phase-out schedule on a compound-specificbasis runs from 2003 to 2030.
Strong Enforcement Provisions Enhanced criminal enforcement– Longer prison terms– Higher fines Easier commencement of civil actions Administrative penalties– On the spot fines up to 5,000 Enhanced authority to prevent criminalviolators from receiving federal awards
Typical State Permitting SchemeAll quiringFederalOperatingPermitSyntheticMinor PermitsSources 5 TPY in nonattainmentExempt sources listed as insignificantSources 1 TPY in nonattainmentSources using general permitsSources 100 TPYSources limiting 100 TPY
CAA Future?Climate Change Massachusetts v. EPA Supreme Court decision in 2007 On June 2, 2014, EPA, under President Obama's ClimateAction Plan, proposed a commonsense plan to cut carbonpollution from existing power plants (Clean Power Plan). June, 2014 Supreme Court in Utility Air Regulatory Group v.EPA, recognized EPA’s power to regulate greenhouse gasemissions but placed limits on the program already in place. On February 9, the Supreme Court put a hold on PresidentObama’s plan to regulate C02 emissions from power plantspending the outcome of legal challenge by more than twodozen states.
CAA Future?Toxic emissions EPA estimates that almost 14 million people in more than 60urban locations have lifetime cancer risks greater than 100 ina million. Elevated risks are often found in the largest urban areaswhere there are multiple emission sources, communities nearindustrial facilities, and/or areas near large roadways ortransportation facilities. As directed by Congress, EPA has completed emissionsstandards for all 174 major source categories, and 68categories of small area sources representing 90 percent ofemissions of 30 priority pollutants for urban areas.
Closing A few Famous quotes Views of our Presidential hopefulsThank you!James “Skip” SpensleyJWSpensley@gmail.com
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