USCA Case #24-1120 Document #2083273 Filed: 11/01/2024 Page 1 of 205
`
`Set for ORAL ARGUMENT on DECEMBER 6, 2024
`
`No. 24-1120 (and consolidated cases)
`
`______________________________________
`
`IN THE UNITED STATES COURT OF APPEALS
`FOR THE DISTRICT OF COLUMBIA CIRCUIT
`_______________________________________
`STATE OF WEST VIRGINIA, et al.,
`
`V.
`ENVIRONMENTAL PROTECTION AGENCY, et al.,
`
`Petitioners,
`
`Respondents.
`______________________________________
`On Petitions for Review of Final Agency Action of the
`United States Environmental Protection Agency
`89 Fed. Reg. 39,798 (May 9, 2024)
`______________________________________
`OPENING BRIEF OF PETITIONERS
`______________________________________
`
`Theodore E. Rokita
` Attorney General
`James A. Barta
` Solicitor General
`OFFICE OF THE
`ATTORNEY GENERAL
`OF INDIANA
`302 W. Washington St.
`Indianapolis, IN 46204
`(317) 232-0709
`Counsel for Petitioner
`State of Indiana
`
`Patrick Morrisey
`Attorney General
`Michael R. Williams
`Solicitor General
`OFFICE OF THE WEST VIRGINIA
`ATTORNEY GENERAL
`1900 Kanawha Blvd. E
`State Capitol Bldg. 1, Rm. 26-E
`Charleston, WV 25305
`(304) 558-2021
`Counsel for Petitioner
`State of West Virginia
`
`Additional counsel listed on following pages
`
`

`

`USCA Case #24-1120 Document #2083273 Filed: 11/01/2024 Page 2 of 205
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`Steve Marshall
`Attorney General
`Edmund G. LaCour Jr.
` Solicitor General
`OFFICE OF THE ATTORNEY
`GENERAL
`STATE OF ALABAMA
`501 Washington Ave.
`P.O. Box 300152
`Montgomery, AL 36130-0152
`(334) 242-7300
`Counsel for Petitioner State of
`Alabama
`
`Treg Taylor
`Attorney General
`Garrison Todd
` Assistant Attorney General
`ALASKA DEPARTMENT OF LAW
`1031 W. 4th Ave., Suite 200
`Anchorage, AK 99501
`(907) 269-5100
`Counsel for Petitioner State of
`Alaska
`
`Allison D. Wood
`Makram B. Jaber
`Aaron M. Flynn
`MCGUIREWOODS LLP
`888 16th Street, NW, Suite 500
`Black Lives Matter Plaza
`Washington, DC 20006
`(202) 857-2420
`Paul D. Clement
`C. Harker Rhodes IV
`CLEMENT & MURPHY, PLLC
`706 Duke Street
`Alexandria, VA 22314
`(202) 742-8900
`Counsel for Petitioner Electric
`Generators for a Sensible
`Transition
`
`Scott A. Keller
`Steven P. Lehotsky
`Michael B. Schon
`Joshua P. Morrow
`Jacob B. Richards
`LEHOTSKY KELLER COHN LLP
`200 Massachusetts Ave., NW
`Suite 700
`Washington, DC 20001
`(512) 693-8350
`Mithun Mansinghani
`LEHOTSKY KELLER COHN LLP
`629 W. Main St.
`Oklahoma City, OK 73102
`Counsel for Petitioner National
`Rural Electric Cooperative
`Association
`
`

`

`USCA Case #24-1120 Document #2083273 Filed: 11/01/2024 Page 3 of 205
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`Thomas A. Lorenzen
`Amanda Shafer Berman
`Elizabeth B. Dawson
`CROWELL & MORING LLP
`1001 Pennsylvania Ave., NW
`Washington, DC 20004
`(202) 624-2500
`Counsel for Petitioner Edison
`Electric Institute
`
`Megan H. Berge
`BAKER BOTTS L.L.P.
`700 K Street, NW
`Washington, DC 20001
`(415) 291-6233
`(202) 639-7733
`J. Mark Little
`BAKER BOTTS L.L.P.
`910 Louisiana Street
`Houston, TX 77002
`(713) 229-1489
`Counsel for Petitioners Idaho
`Power Company; Oklahoma Gas
`and Electric Company; Montana-
`Dakota Utilities Co.; and Rainbow
`Energy Center, LLC
`
`Tim Griffin
`Attorney General
`Nicholas J. Bronni
` Solicitor General
`Dylan Jacobs
`Deputy Solicitor General
`OFFICE OF THE ARKANSAS
`ATTORNEY GENERAL
`323 Center Street, Suite 200
`Little Rock, AR 72201
`(501) 682-2007
`Counsel for Petitioner State of
`Arkansas
`
`Ashley Moody
` Attorney General
`Henry C. Whitaker
` Solicitor General
`James H. Percival
` Chief of Staff
`OFFICE OF THE ATTORNEY
`GENERAL
`The Capital, Pl-01
`Tallahassee, FL 32399-1050
`(850) 414-3300
`Counsel for Petitioner State of
`Florida
`
`

`

`USCA Case #24-1120 Document #2083273 Filed: 11/01/2024 Page 4 of 205
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`David M. Flannery
`Kathy G. Beckett
`Keeleigh S. Huffman
`STEPTOE & JOHNSON PLLC
`707 Virginia Street, East
`P.O. Box 1588
`Charleston, WV 25326
`(304) 353-8000
`Edward L. Kropp
`STEPTOE & JOHNSON PLLC
`P.O. Box 36425
`Indianapolis, IN 46236
`(317) 946-9882
`Counsel for Petitioners Midwest
`Ozone Group and Appalachian
`Region Independent Power
`Producers
`
`Misha Tseytlin
`TROUTMAN PEPPER HAMILTON
`SANDERS LLP
`227 W. Monroe Street, Suite 3900
`Chicago, IL 60606
`(608) 999-1240
`Carroll Wade McGuffey III
`Melissa Horne
`TROUTMAN PEPPER HAMILTON
`SANDERS LLP
`600 Peachtree St. N.E.
`Suite 3000
`Atlanta, GA 30308
`(404) 885-3698
`Counsel for Petitioners National
`Mining Association and America’s
`Power
`
`Christopher M. Carr
` Attorney General
`Stephen J. Petrany
` Solicitor General
`OFFICE OF THE ATTORNEY
`GENERAL OF GEORGIA
`40 Capital Square, SW
`Atlanta, GA 30334
`(404) 458-3408
`Counsel for Petitioner State of
`Georgia
`
`Raúl R. Labrador
`Attorney General
`Joshua N. Turner
` Chief of Constitutional
` Litigation and Policy
`Alan M. Hurst
`Solicitor General
`OFFICE OF THE IDAHO ATTORNEY
`GENERAL
`P.O. Box 83720
`Boise, ID 83720-0010
`(208) 334-2400
`Counsel for Petitioner State of
`Idaho
`
`

`

`USCA Case #24-1120 Document #2083273 Filed: 11/01/2024 Page 5 of 205
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`Eugene M. Trisko
`Law Offices of Eugene M. Trisko
`P.O. Box 330133
`Atlantic Beach, FL 32233
`(301) 639-5238
`Counsel for Petitioners United
`Mine Workers of America, AFL-
`CIO; International Brotherhood of
`Electrical Workers, AFL-CIO; and
`International Brotherhood of
`Boilermakers, Iron Ship Builders,
`Blacksmiths, Forgers and Helpers,
`AFL-CIO
`
`Kris W. Kobach
` Attorney General
`Anthony J. Powell
` Solicitor General
`OFFICE OF THE KANSAS ATTORNEY
`GENERAL
`120 SW 10th Avenue, 2nd Floor
`Topeka, KS 66612
`(785) 368-8539
`Counsel for Petitioner State of
`Kansas
`
`

`

`USCA Case #24-1120 Document #2083273 Filed: 11/01/2024 Page 6 of 205
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`Brenna Bird
` Attorney General
`Eric H. Wessan
` Solicitor General
`OFFICE OF THE ATTORNEY
`GENERAL OF IOWA
`1305 E. Walnut Street
`Des Moines, IA 50319
`(515) 823-9117
`Counsel for Petitioner State of
`Iowa
`
`Charles T. Wehland
`JONES DAY
`110 North Wacker Drive
`Suite 4800
`Chicago, IL 60601-1692
`(312) 269-4388
`Yaakov Roth
`Brinton Lucas
`S. Matthew Krsacok
`JONES DAY
`51 Louisiana Avenue, NW
`Washington, DC 20001
`(202) 879-7658
`Jeffery D. Ubersax
`KUSHNER & HAMED CO., LPA
`1375 East Ninth Street
`Suite 1390
`Cleveland, OH 44114
`(216) 696-6700
`Counsel for Petitioner
`NACCO Natural Resources
`Corporation
`
`

`

`USCA Case #24-1120 Document #2083273 Filed: 11/01/2024 Page 7 of 205
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`Martin T. Booher
`Joshua T. Wilson
`Baker & Hostetler LLP
`2000 Key Tower
`127 Public Square
`Cleveland, OH 44114
`Mark W. DeLaquil
`Baker & Hostetler LLP
`1050 Connecticut Ave., NW
`Suite 1100
`Washington, DC 20036
`(202) 861-1527
`Counsel for Petitioners,
`Westmoreland Mining Holdings
`LLC; Westmoreland Mining LLC;
`and Westmoreland Rosebud
`Mining LLC
`
`Liz Murrill
` Attorney General
`J. Benjamin Aguiñaga
` Solicitor General
`Tracy Short
` Assistant Attorney General
`LOUISIANA DEPARTMENT OF
`JUSTICE
`1885 N. Third Street
`Baton Rouge, LA 70804
`(225) 326-6766
`Counsel for Petitioner State of
`Louisiana
`
`Russell Coleman
`Attorney General
`Matthew F. Kuhn
`Solicitor General
`Jacob M. Abrahamson
` Counsel for Special Litigation
`OFFICE OF THE KENTUCKY
`ATTORNEY GENERAL
`700 Capital Avenue, Suite 118
`Frankfort, KY 40601
`(502) 696-5300
`Counsel for Petitioner
`Commonwealth of Kentucky
`
`Lynn Fitch
` Attorney General
`Justin L. Matheny
` Deputy Solicitor General
`OFFICE OF THE MISSISSIPPI
`ATTORNEY GENERAL
`P.O. Box 220
`Jackson, MS 39205-0220
`(601) 359-3825
`Counsel for Petitioner State of
`Mississippi
`
`

`

`USCA Case #24-1120 Document #2083273 Filed: 11/01/2024 Page 8 of 205
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`Andrew Bailey
` Attorney General
`Joshua M. Divine
` Solicitor General
`MISSOURI ATTORNEY GENERAL’S
`OFFICE
`P.O. Box 899
`Jefferson City, MO 65102
`(573) 751-1800
`Counsel for Petitioner State of
`Missouri
`
`Austin Knudsen
` Attorney General
`Christian B. Corrigan
` Solicitor General
`Peter M. Torstensen, Jr.
` Deputy Solicitor General
`MONTANA DEPARTMENT OF
`JUSTICE
`215 North Sanders
`P.O. Box 201401
`Helena, MT 59620-1401
`(406) 444-2026
`Counsel for Petitioner State of
`Montana
`
`Michael T. Hilgers
` Attorney General
`Zachary A. Viglianco
` Deputy Solicitor General
`OFFICE OF THE ATTORNEY
`GENERAL OF NEBRASKA
`2115 State Capitol
`Lincoln, NE 68509
`(531) 739-7645
`Counsel for Petitioner State of
`Nebraska
`
`John Formella
` Attorney General
`Mark W. Dell’Orfano
` Assistant Attorney General
`NEW HAMPSHIRE DEPARTMENT OF
`JUSTICE
`33 Capitol Street
`Concord, NH 03301
`(603) 271-3643
`Counsel for Petitioner State of
`New Hampshire
`
`

`

`USCA Case #24-1120 Document #2083273 Filed: 11/01/2024 Page 9 of 205
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`Drew H. Wrigley
` Attorney General
`Philip Axt
` Solicitor General
`OFFICE OF ATTORNEY GENERAL OF
`NORTH DAKOTA
`600 E. Boulevard Ave., Dept. 125
`Bismarck, ND 58505
`(701) 328-2210
`Counsel for Petitioner State of
`North Dakota
`
`Gentner Drummond
`Attorney General
`Garry M. Gaskins, II
` Solicitor General
`Jennifer L. Lewis
` Deputy Attorney General
`OFFICE OF THE ATTORNEY
`GENERAL OF OKLAHOMA
`313 NE Twenty-First St.
`Oklahoma City, OK 73105
`(405) 521-3921
`Counsel for Petitioner State of
`Oklahoma
`
`Dave Yost
`Attorney General
`T. Elliott Gaiser
`Solicitor General
`Mathura J. Sridharan
`Zachery P. Keller
`Deputy Solicitors General
`John K. McManus
`Assistant Attorney General
`OHIO ATTORNEY GENERAL’S OFFICE
`30 East Broad St., 17th Floor
`Columbus, OH 43215
`(614) 466-8980
`Counsel for Petitioner State of
`Ohio
`
`Alan Wilson
` Attorney General
`Robert D. Cook
` Solicitor General
`J. Emory Smith, Jr.
` Deputy Solicitor General
`Thomas T. Hydrick
`Joseph D. Spate
` Assistant Deputy Solicitors
` General
`OFFICE OF THE ATTORNEY
`GENERAL OF SOUTH CAROLINA
`1000 Assembly Street
`Columbia, SC 29201
`(803) 734-3371
`Counsel for Petitioner State of
`South Carolina
`
`

`

`USCA Case #24-1120 Document #2083273 Filed: 11/01/2024 Page 10 of 205
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`Jonathan Skrmetti
` Attorney General and Reporter
`J. Matthew Rice
` Solicitor General
`Whitney Hermandorfer
` Director of Strategic Litigation
`OFFICE OF THE ATTORNEY
`GENERAL AND REPORTER OF
`TENNESSEE
`P.O. Box 20207
`Nashville, TN 37202-0207
`(615) 741-7403
`Counsel for Petitioner State of
`Tennessee
`
`Sean Reyes
` Attorney General
`Stanford E. Purser
` Solicitor General
`OFFICE OF THE UTAH ATTORNEY
`GENERAL
`160 E. 300 S., 5th Floor
`Salt Lake City, UT 84111
`(385) 382-4334
`Counsel for Petitioner State of
`Utah
`
`Marty J. Jackley
`Attorney General
`Steven Blair
` Deputy Attorney General
`SOUTH DAKOTA ATTORNEY
`GENERAL’S OFFICE
`1302 E. Highway 14, Suite 1
`Pierre, SD 57501
`(605) 773-3215
`Counsel for Petitioner State of
`South Dakota
`
`Ken Paxton
` Attorney General
`Brent Webster
` First Assistant Attorney General
`Ralph Molina, Deputy First
`Assistant Attorney General
`James Lloyd
` Deputy Attorney General for
` Civil Litigation
`Kellie E. Billings-Ray Chief,
`Environmental Protection
` Division
`Wesley S. Williams
`Ian Lancaster
`Assistant Attorneys General
`OFFICE OF THE ATTORNEY
`GENERAL OF TEXAS
`ENVIRONMENTAL PROTECTION
`DIVISION
`P.O. Box 12548, MC-066
`Austin, TX 78711-2548
`(512) 463-2012
`Counsel for Petitioner State of
`Texas
`
`

`

`USCA Case #24-1120 Document #2083273 Filed: 11/01/2024 Page 11 of 205
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`Bridget Hill
` Attorney General
`D. David DeWald
` Deputy Attorney General
`OFFICE OF THE ATTORNEY
`GENERAL OF WYOMING
`109 State Capitol
`Cheyenne, WY 82002
`(307) 777-7895
`Counsel for Petitioner State of
`Wyoming
`
`Jason Miyares
` Attorney General
`Erika L. Maley
` Solicitor General
`Kevin M. Gallagher
` Principal Deputy Solicitor
` General
`Brendan T. Chestnut
`Deputy Solicitor General
`VIRGINIA ATTORNEY GENERAL’S
`OFFICE
`202 North 9th Street
`Richmond, VA 23219
`(804) 786-2071
`Counsel for Petitioner
`Commonwealth of Virginia
`
`

`

`USCA Case #24-1120 Document #2083273 Filed: 11/01/2024 Page 12 of 205
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`CERTIFICATE AS TO PARTIES,
`RULINGS, AND RELATED CASES
`Pursuant to Circuit Rule 28(a)(1), Petitioners state as follows:
`
`Parties, Intervenors, and Amici Curiae
`A.
`These cases involve the following parties, intervenors, and amici
`
`curiae:
`
`Petitioners
`
`24-1120: State of West Virginia, State of Indiana, State of Alabama,
`
`State of Alaska, State of Arkansas, State of Florida, State of Georgia,
`
`State of Idaho, State of Iowa, Commonwealth of Kentucky, State of
`
`Louisiana, State of Mississippi, State of Missouri, State of Montana,
`
`State of Nebraska, State of New Hampshire, State of North Dakota, State
`
`of Oklahoma, State of South Carolina, State of South Dakota, State of
`
`Tennessee, State of Texas, State of Utah, Commonwealth of Virginia, and
`
`State of Wyoming
`
`24-1121: State of Ohio and State of Kansas
`
`24-1122: National Rural Electric Cooperative Association
`
`24-1124: National Mining Association and America’s Power
`
`24-1126: Oklahoma Gas and Electric Company
`
`24-1128: Electric Generators for a Sensible Transition
`
`i
`
`

`

`USCA Case #24-1120 Document #2083273 Filed: 11/01/2024 Page 13 of 205
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`24-1142: United Mine Workers of America, AFL-CIO
`
`24-1143: International Brotherhood of Electrical Workers, AFL-
`
`CIO
`
`24-1144: International Brotherhood of Boilermakers, Iron Ship
`
`Builders, Blacksmiths, Forgers and Helpers, AFL-CIO
`
`24-1146: Midwest Ozone Group
`
`24-1152: Edison Electric Institute
`
`24-1153: NACCO Natural Resources Corporation
`
`24-1155: Idaho Power Company
`
`24-1222: Appalachian Region Independent Power Producers
`
`Association
`
`24-1226: Rainbow Energy Center, LLC
`
`24-1227: Montana-Dakota Utilities Co.
`
`24-1233: Westmoreland Mining Holdings LLC, Westmoreland
`
`Mining LLC, and Westmoreland Rosebud Mining LLC
`
`Respondents
`
`Respondents are the United States Environmental Protection
`
`Agency (in Nos. 24-1120, 24-1121, 24-1122, 24-1124, 24-1126, 24-1128,
`
`24-1142, 24-1143, 24-1144, 24-1146, 24-1152, 24-1153, 24-1155, 24-1222,
`
`ii
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`

`

`USCA Case #24-1120 Document #2083273 Filed: 11/01/2024 Page 14 of 205
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`24-1226, 24-1227, and 24-1233) and Michael S. Regan, Administrator,
`
`United States Environmental Protection Agency (in Nos. 24-1120, 24-
`
`1121, 24-1122, 24-1124, 24-1126, 24-1146, 24-1153, 24-1155, 24-1222, 24-
`
`1226, 24-1227, and 24-1233).
`
`Intervenors and Amici Curiae
`
`The Louisiana Public Service Commission and the Tennessee
`
`Valley Public Power Association, Inc. are Petitioner-Intervenors.
`
`The American Lung Association, American Public Health
`
`Association, California Air Resources Board, City and County of Denver,
`
`City of Boulder, City of Chicago, City of New York, Clean Air Council,
`
`Clean Wisconsin, Commonwealth of Massachusetts, Commonwealth of
`
`Pennsylvania, Consolidated Edison, Inc., District of Columbia, Edison
`
`Electric Institute, Natural Resources Defense Council, New York Power
`
`Authority, Pacific Gas and Electric Company, Power Companies Climate
`
`Coalition, Sacramento Municipal Utility District, State of Arizona, State
`
`of Colorado, State of Connecticut, State of Delaware, State of Hawaii,
`
`State of Illinois, State of Maine, State of Maryland, State of Michigan,
`
`State of Minnesota, State of New Jersey, State of New Mexico, State of
`
`New York, State of North Carolina, State of Oregon, State of Rhode
`
`iii
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`

`

`USCA Case #24-1120 Document #2083273 Filed: 11/01/2024 Page 15 of 205
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`Island, State of Vermont, State of Washington, and State of Wisconsin
`
`are Respondent-Intervenors.
`
`The Chamber of Commerce of the United States of America is an
`
`amicus curiae in support of Petitioners.
`
`Sierra Club, Environmental Defense Fund, and Professor
`
`Rothschild are amici curiae in support of Respondents.
`
`B. Ruling Under Review
`These consolidated cases involve final agency action of the United
`
`States Environmental Protection Agency entitled: “New Source
`
`Performance Standards for Greenhouse Gas Emissions From New,
`
`Modified, and Reconstructed Fossil Fuel-Fired Electric Generating
`
`Units; Emission Guidelines for Greenhouse Gas Emissions From
`
`Existing Fossil Fuel-Fired Electric Generating Units; and Repeal of the
`
`Affordable Clean Energy Rule,” and published on May 9, 2024, at 89 Fed.
`
`Reg. 39,798.
`
`C. Related Cases
`These consolidated cases have not previously been before this Court
`
`or any other court.
`
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`USCA Case #24-1120 Document #2083273 Filed: 11/01/2024 Page 16 of 205
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`CORPORATE DISCLOSURE STATEMENTS
`Non-governmental Petitioners submit the following statements
`
`under Rule 26.1 of the Federal Rules of Appellate Procedure and Circuit
`
`Rule 26.1:
`
`America’s Power is a nonprofit membership corporation, and its
`members are companies involved in the production of electricity from
`coal. As the only national trade association whose sole mission is to
`advocate at the federal and state levels on behalf of coal-fueled electricity
`and the coal fleet, America’s Power recognizes the inextricable link
`between energy, the economy, and our environment. America’s Power
`supports policies that promote the wise use of coal, one of America’s
`largest domestically produced energy resources. America’s Power is a
`“trade association” within the meaning of Circuit Rule 26.1(b). It has no
`parent corporation, and no publicly held company has 10% or greater
`ownership interest in America’s Power.
`Appalachian Region Independent Power Producers Association
`(“ARIPPA”) is a non-profit trade association that represents a
`membership primarily comprised of electric generating plants using
`environmentally friendly circulating fluidized bed boiler technology to
`convert coal refuse and/or alternative fuels such as biomass into
`alternative energy and/or steam, with the resultant alkaline ash used to
`reclaim mine lands. ARIPPA was organized for the purpose of promoting
`the general interests of its member facilities. ARIPPA has no parent
`companies, subsidiaries, or affiliates that have issued shares or debt
`securities to the public, although specific individuals in the membership
`of ARIPPA have done so. ARIPPA has no outstanding shares or debt
`securities in the hands of the public and has no parent company. No
`publicly held company has a 10% or greater ownership interest in
`ARIPPA.
`Edison Electric Institute (“EEI”) is a national association of investor-
`owned electric utility companies and operates on a consensus basis with
`regards to public policy issues, which may not reflect unanimity amongst
`all member companies. It has no parent companies, subsidiaries or
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`USCA Case #24-1120 Document #2083273 Filed: 11/01/2024 Page 17 of 205
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`affiliates. EEI has no outstanding shares or debt securities in the hands
`of the public, and no publicly owned company has a 10% or greater
`ownership interest in EEI.
`Electric Generators for a Sensible Transition is an ad hoc coalition
`of electric generating companies and a national trade association that
`have joined together for the purpose of challenging the final rule of the
`United States Environmental Protection Agency that is at issue in these
`consolidated cases. The members of the ad hoc coalition own and operate
`(or are the parent corporations of subsidiaries that own and operate)
`electric generating units that are subject to the final rule or have
`members that own and operate such units. The members of the ad hoc
`coalition are: Ameren Missouri; American Electric Power Company, Inc.;
`American Public Power Association; Appalachian Power Company;
`Arizona Public Service Company; Duke Energy Corporation; Evergy,
`Inc.; Kentucky Power Company; Kentucky Utilities Company; Louisville
`Gas and Electric Company; MidAmerican Energy Company;
`Monongahela Power Company; Nevada Power Company d/b/a NV
`Energy; NorthWestern Energy Group, Inc.; NRG Energy, Inc.; NRG
`Texas Power LLC; Ohio Valley Electric Corporation; PacifiCorp; Public
`Service Company of Oklahoma; Sierra Pacific Power Company d/b/a NV
`Energy; The Southern Company; Southwestern Electric Power Company;
`Talen Generation, LLC; Talen Montana Holdings, LLC; Vistra Corp.; and
`Wheeling Power Company. Electric Generators for a Sensible Transition
`has no parent corporation, and no publicly held corporation has a 10% or
`greater ownership in it.
`Idaho Power Company is a wholly owned subsidiary of IDACORP,
`Inc., an Idaho corporation. The publicly traded corporation, IDACORP,
`Inc., owns 100% of the stock of Idaho Power Company.
`International Brotherhood of Boilermakers, Iron Ship Builders,
`Blacksmiths, Forgers & Helpers, AFL-CIO (“IBB”) is a non-profit
`national labor organization with headquarters in Kansas City, Kansas.
`IBB’s members are active and retired members engaged in various
`skilled trades of welding and fabrication of boilers, ships, pipelines, and
`other industrial facilities and equipment in the United States and
`Canada, and workers in other industries in the United States organized
`by the IBB. The IBB provides collective bargaining representation and
`vi
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`USCA Case #24-1120 Document #2083273 Filed: 11/01/2024 Page 18 of 205
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`other membership services on behalf of its members. As a professional
`association, the IBB is not required by FRAP Rule 26.1 or Circuit Rule
`26.1 to provide a list of its members. The IBB is affiliated with the
`American Federation of Labor-Congress of Industrial Organizations. The
`IBB and its affiliated lodges own approximately 60 percent of the
`outstanding stock of Brotherhood Bancshares, Inc., the holding company
`of the Bank of Labor. Bank of Labor’s mission is to serve the banking and
`other financial needs of the North American labor movement. No entity
`owns 10 percent or more of the IBB.
`International Brotherhood of Electrical Workers, AFL-CIO
`(“IBEW”) is a non-profit national labor organization with headquarters
`located at 900 7th Street, N.W., Washington, D.C. 20001. IBEW’s
`members are active and retired skilled electricians and related
`professionals engaged in a broad array of U.S. industries, including the
`electrical utility, coal mining, and railroad transportation sectors that
`stand to be impacted adversely by implementation of the EPA’s final
`agency action. IBEW provides collective bargaining representation and
`other membership services and benefits on behalf of its members. IBEW
`is affiliated with the American Federation of Labor-Congress of
`Industrial Organizations. IBEW has no parent companies, subsidiaries,
`or affiliates that have issued shares or debt securities to the public.
`Midwest Ozone Group is a continuing association of organizations and
`individual entities operated to promote the general interests of its
`membership on matters related to air emissions and air quality. Midwest
`Ozone Group has no parent companies, subsidiaries, or affiliates that
`have issued shares or debt securities to the public, although specific
`individual members of Midwest Ozone Group have done so. Midwest
`Ozone Group has no outstanding shares or debt securities in the hand of
`the public and has no parent company. No publicly held company has a
`10% or greater ownership interest in Midwest Ozone Group.
`Montana-Dakota Utilities Co. is engaged in the distribution of natural
`gas and the generation, transmission, and distribution of electricity in
`the States of North Dakota, South Dakota, Montana, and Wyoming.
`Montana-Dakota Utilities Co. is a direct, wholly owned subsidiary of
`MDU Energy Capital, LLC. MDU Energy Capital, LLC, is a direct,
`wholly owned subsidiary of MDU Resources Group, Inc. No publicly held
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`company has a 10% or greater ownership interest in MDU Resources
`Group, Inc.
`NACCO Natural Resources Corporation (“NACCO”) is a wholly
`owned subsidiary of NACCO Industries, Inc. NACCO is not publicly held,
`but NACCO Industries, Inc., its parent, is a publicly traded corporation
`that owns more than 10% of the stock of NACCO. No other publicly held
`corporation owns more than 10% of the stock of NACCO. The general
`nature and purpose of NACCO, insofar as relevant to this litigation, is
`the mining and delivery of lignite coal as fuel for power generation; and
`the provision of mining services to natural resources companies.
`National Mining Association (“NMA”) is a nonprofit national trade
`association that represents the interests of the mining industry,
`including every major coal company operating in the United States. NMA
`has over 250 members, whose interests it represents before Congress, the
`administration, federal agencies, the courts, and the media. NMA is a
`“trade association” within the meaning of Circuit Rule 26.1(b). NMA is
`not a publicly held corporation and has no parent corporation. No publicly
`held company has 10% or greater ownership interest in NMA.
`National Rural Electric Cooperative Association (“NRECA”) is the
`national association
`for nearly 900 not-for-profit rural electric
`cooperatives and public power districts that provide electric service to
`roughly one in eight Americans, covering 56% of the Nation’s landscape.
`Rural electric cooperatives serve millions of businesses, homes, schools,
`farms, irrigation systems, and other establishments in 2,500 of the
`nation’s over 3,100 counties, including 92% of the Nation’s persistent
`poverty counties. America’s electric cooperatives are owned by the people
`they serve, and they comprise a unique sector of the electric industry.
`Electric cooperatives are focused on providing affordable, reliable, and
`safe electric power in an environmentally responsible manner. NRECA
`is not a publicly held corporation, and NRECA has no parent corporation.
`No publicly held company has 10% or greater ownership interest in
`NRECA.
`Oklahoma Gas and Electric Company (“OG&E”) is a corporation
`organized and existing under the laws of the state of Oklahoma, and has
`its principal office in Oklahoma City, Oklahoma. OG&E is a wholly
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`owned subsidiary of OGE Energy Corp., a holding company that is
`exempt from registration under the Public Utility Holding Company Act
`of 2005. The Vanguard Group and BlackRock Fund Advisors each has a
`10% or greater ownership interest in OGE Energy Corp. No other
`publicly held company has a 10% or greater ownership interest in OGE
`Energy Corp. The common stock of OGE Energy Corp. is publicly traded
`and listed on the New York Stock Exchange. OGE Energy Corp. has no
`parent company.
`Rainbow Energy Center, LLC (“Rainbow”), a North Dakota limited
`liability company,
`is a wholesale power generation company
`headquartered in Bismarck, North Dakota. Rainbow is a wholly owned
`subsidiary of REMC Assets, LP, a North Dakota limited partnership.
`REMC Group, LLC, a North Dakota limited liability company, holds the
`1% general partner controlling interest in REMC Assets, LP. No publicly
`held corporation has a 10% or greater ownership interest in REMC
`Assets, LP or in REMC Group, LLC.
`United Mine Workers of America (“UMWA”) is a non-profit national
`labor organization with headquarters in Triangle, Virginia. UMWA’s
`members are active and retired miners engaged in the extraction of coal
`and other minerals in the United States and Canada, and workers in
`other industries in the United States organized by the UMWA. UMWA
`provides collective bargaining representation and other membership
`services on behalf of its members. UMWA is affiliated with the American
`Federation of Labor-Congress of Industrial Organizations. UMWA has
`no parent companies, subsidiaries, or affiliates that have issued shares
`or debt securities to the public.
`Westmoreland Mining Holdings LLC has no parent corporation and
`no publicly held corporations own 10% or more of its stock. The company
`has an extensive portfolio of coal mining operations in the United States
`and Canada.
`Westmoreland Mining LLC has no parent corporation and no publicly
`held corporations own 10% or more of its stock. The company has an
`extensive portfolio of coal mining operations in the United States and
`Canada.
`
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`Westmoreland Rosebud Mining LLC has no parent corporation and
`no publicly held corporations own 10% or more of its stock. The company
`has an extensive portfolio of coal mining operations in the United States
`and Canada.
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`TABLE OF CONTENTS
`
`CERTIFICATE AS TO PARTIES, RULINGS, AND RELATED
`CASES ........................................................................................................ i
`A. Parties, Intervenors, and Amici Curiae ................................ i
`B. Ruling Under Review ........................................................... iv
`C. Related Cases ....................................................................... iv
`CORPORATE DISCLOSURE STATEMENTS ......................................... v
`GLOSSARY OF TERMS ...................................................................... xxiii
`INTRODUCTION ...................................................................................... 1
`JURISDICTIONAL STATEMENT ........................................................... 4
`STATEMENT OF THE ISSUES ............................................................... 4
`STATUTES AND REGULATIONS .......................................................... 6
`STATEMENT OF THE CASE .................................................................. 6
`I. Standards of Performance Under the Clean Air Act .................. 6
`II. EPA’s Past Section 7411 Rules Addressing CO2 Emissions
`from Power Plants ....................................................................... 9
`A. 2015 Performance Standards for New Power Plants ........... 9
`B. The Clean Power Plan ........................................................ 11
`C. The Affordable Clean Energy Rule ..................................... 12
`D. West Virginia v. EPA .......................................................... 13
`III. The 2024 Rule ............................................................................ 14
`SUMMARY OF ARGUMENT ................................................................. 17
`STANDING ............................................................................................. 22
`
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`STANDARD OF REVIEW....................................................................... 23
`ARGUMENT ........................................................................................... 24
`I. EPA acted unlawfully in mandating a 90%-capture CCS
`system as the BSER................................................................... 24
`A. EPA violated its statutory duty to ensure that 90%
`CCS “has been adequately demonstrated” and that the
`Rule’s emission standard is “achievable.” .......................... 26
`1. EPA’s statutory interpretation of “has been
`adequately demonstrated” and “achievable” is
`unlawful. ...................................................................... 26
`2. EPA erred in concluding 90% CCS “has been
`adequately demonstrated” and in declaring the
`emission limitation based on that system to be
`“achievable.” ................................................................. 43
`B. EPA failed to account for the full cost of its chosen
`system. ................................................................................ 75
`1. As EPA has long admitted, CCS is prohibitively
`costly. ............................................................................ 76
`2. EPA obscured the Rule’s true costs by claiming
`costs to the taxpayer can be wholly ignored. ............... 79
`1. EPA’s defenses of its cost analysis are meritless. ....... 82
`C. EPA failed to account for energy requirements by not
`adequately addressing reliability concerns. ....................... 89
`1. The Rule will undermine the electric grid. .................. 90
`2. EPA failed to adequately address reliability
`concerns. ....................................................................... 94
`3. EPA’s reliance on its own model to dismiss
`reliability concerns was flawed and renders the
`Rule arbitrary and capricious. ..................................... 98
`
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`II. The 4