ÿWPCto •¬ÁB,œÉl:ŸÂúê :‚HÄpÀ%<«4v´;½Ócj¶Ä²~e`x%˜ÇJ"¥DXklºÿÏ%ÍÓ±š¬ª[‹Ú¬Ì ¨ÇmÉyaJ+4Oïh ÇÄø‹@žo-icÈÂ*†6JXe§ÓL™Åm~7 “A8.I»ó(l={Œ™çmóCárD1 rZ[(>©›½ÓjÊý¥±ãUœÇŽöáÿßl"Ú/ÊàY&&Ú¬—gϦ •û‘z)i ¬O“[=´8ÇÔ|ïÃJÂï2–ˆ}F—H‹2Œp§EŽ7Ót´|k®7TÏDþƒô*Æžó}oçŒÛæÃ¡úÃÙÍŸµ»×‹cziȉÝ×f²ååA ß»øõ< ëjÕÄPµyÉFSlDÞÃK-vŒaÉè¾GôâüÄÜ|\ÚÆÉ*{‡˜pö‡ëIh??À ®ÏÃ=ÿæ±ò×µ ò—®˜ ¨ßç`r˜ð\ÙA±°À’§ˆhØlÝÄËø.2,-Wàaøc¿ÚMÒ8<6Ö à6ØZt$¢3 CùO¸µ×úUÞ‰s:ó–C^ΰ<}­C:¯²\–§‚æ”V— ®_‹Æ…=ÕÿykµÔ³µdêüí#!8UNY %§ 0(­ 1uÕ BJw@g4§»Ê mÌ 0eã 1‡H 0@ÏU*N9Ä; BÿU6: 1‡V"Ý 0gÿ 0cf^ É 1‡Õ 1‡\ 0@ã#þ9Æ7 0eýÆb 0l( 0D” 0wØ 0ŠO 0 Ù 0´y 0Ç- 0Ûô 0ïÏ 1‡¾ 0eE! ƪ! 0gp" 1‡×""^#§€# 1‡'% 1‡®% 1‡5& D3¼& ï&'''ê'A(A)`+—ý+—”,>+-ài/ZI4I4I4I4I4I4I4 0D£53ç5ç5ç5ç5ç5ç5ç5|7M–; 01š; 0=Ë; 0È< 0>Ð< 0Ê= 0´Ø= 0´Œ> 0a@? 0´¡? 0´U@ 09 A 0ÜBA 02B 0üPB 0:LC 0…†C 0_ D 0 jD 0ktE 0•ßF D3tH D+§H 0•ÒH 0çgJ 06NK 0„K 0:ŒL 0hÆL 0F.MU6tMU>ªMMèM ìMM R R R R R R 1‡R 1‡—R 1‡S 1‡¥S 1‡,T 1‡³T 1‡:U 1‡ÁU 1‡HV 1‡ÏV 1‡VW 1‡ÝW 1‡dX 1‡ëX 1‡rY 1‡ùYЀZ 0&AP\ 1Ÿ‘\ 1Ÿ0]0]0] 0TÏ] 0h#^ 0|‹^ 0_ AQ—_Æè_ 0D®` 0Dò` 0D6a D3zaza AS­a 1‡bbbb 0D‡b^ ËbUN×bUN%c%c%c%c%c%c%c%c%c%c%c%c%c%c%c%c%c%c%c%c%c%c%c%c»scscscscsc C.dÊHdHd B*hhhhhhU×Ý ƒ"#ÃÝòòÚ  Ú15Ú  ÚóóÝ  Ý×  ×€€Ð è 8  ÐÌHowever,€It€remains€to€be€seen€what€form€federal€implementation€will€take€with€respect€toÏvisibility€programs€for€stationary€sources€in€Indian€country€ð!ðthat€is,€€whether€suchÏimplementation€would€consist€of€EPA„mediated€participation€in€the€market€trading€programÏ(if€triggered),€or€alternative,€case„by„case€measures.€€Tribal€participants€will€work€with€EPAÏin€determining€and€developing€a€preferred€policy.ÌÌIn€the€interim,€it€should€not€be€assumed€that€tribal€sources€will€be€excluded€from€theÏtrading€program,€and€the€trading€program€as€designed€by€the€Forum€must€ensure€that€newÏentrants€into€the€market,€located€on€tribal€land,€are€not€unduly€burdened€by€a€necessity€toÏpurchase€credits€from€existing€sources.€ÌÌÌÓL€ …¤( ‚LÓò òÔ  Ô5.0à0  àMARKET€TRADING€ISSUES€AND€POSITIONS€OF€THE€TRIBAL€CAUCUSÔ ’…Ôó óÐÐ (#(# ÐÌThe€success€of€a€market€system,€from€the€tribesðð€perspective,€will€depend€upon€anÏequitable€allocation€scheme€and€acceptable€administrative€set€up.€€The€following€tribalÏpositions€are€offered€relative€to€current€issues€being€discussed€in€the€Market€TradingÏForum.ÌÌÓL€ †zù((…LÓÓ! KþX!ÓÔ  Ô5.1à0 û àòòCredit€Allocations€„€Tribal€€PositionÔ “‡ÔóóÐL!œû(#û(# ÐÌThere€are€several€options€currently€being€discussed€by€the€WRAPððs€market€trading€forumÏfor€the€initial€allocation€of€emissions€credits€that€would€be€used€if€the€emissions€target€wereÏto€be€exceeded€and€the€market€trading€program€implemented.€€The€presumption€behindÏmost€of€these€options€is€that€the€allocations€should€be€based€on€historic€(i.e.,€1990Ïbaseline)€levels€of€emissions.€€This€presumption€seems€on€the€surface€to€be€fair€andÐ Ô&$"% Ðequitable€to€the€extent€that€those€entities€or€sources€that€created€the€problem€(i.e.,€theÏsources€that€have€been€emitting€SOòò2óó€since€at€least€1990)€will€be€the€ones€that€are€requiredÐ œì Ðto€alleviate€it€(i.e.,€to€reduce€their€emissions).€€The€theoretical€advantage€€of€a€marketÏtrading€program€is€that€the€marketplace€will€drive€the€cost€of€reducing€emissions€down,€andÏthat€those€sources€that€have€ð ðovercompliedðð€will€be€able€to€sell€any€excess€emissionsÏcredits€to€those€that€are€out€of€compliance.€€However,€this€scenario€ignores€aspects€ofÏequity€that€are€important€to€tribal€landsÌÌDue€in€part€to€the€historic€inequities€in€development€related€factors€discussed€the€previousÏsection,€virtually€all€tribal€lands€are€presently€ð ðunderdeveloped,ðð€and€are€not€the€source€ofÏsignificant€SOòò2€óó€emissions.€€However,€some€of€these€tribal€lands€are€apt€to€become€hostÐ è 8  Ðto€development€€in€the€future€and€may€become€the€location€of€significant€point€sources€ofÏSOòò2óó,€from€either€fossil€fuel„fired€power€plants€or€other€industrial€applications.€€Those€tribalÐ À  Ðlands€that€may€develop€in€the€future€should€not€be€penalized€for€not€having€had€a€baselineÏof€emissions€in€1990€from€which€to€reduce€emissions.ÌÌAs€noted€in€the€GCVTC€Recommendations€Reportððs€section€titled€òòAnalysis€of€theÐ pÀ ÐCommissionððs€Recommendationsóó€(p.89),€ð ð(w)ith€respect€to€equity€for€rural€andÐ \¬ Ðunderdeveloped€areas,€including€most€tribal€lands,€it€is€important€to€note€that€such€areasÏhave€not€contributed€significantly€to€the€regional€haze€problem.€€One€method€for€ensuringÏequity€is€to€ensure€that€all€groups€contribute€fairly€to€solutions,€relative€to€their€role€as€anÏemissions€source€and€their€economic€ability€(that€is,€in€proportion€to€the€ability€to€pay).ðð€ÏA€concern€with€respect€to€tribal€lands€in€a€market€trading€program€is€that€they€will€bear€aÏresponsibility€for€contributing€to€solutions€(either€by€being€penalized€for€late€development,Ïor€by€being€held€to€a€historic€low€level€of€emissions€that€impedes€economic€developmentÏon€tribal€lands)€that€goes€well€beyond€their€role€as€an€emissions€source.ÌÌThese€issues€were€anticipated€by€tribal€participants€in€the€Grand€Canyon€VisibilityÏTransport€Commission,€who€offered€the€following€comment:ÌÌà8 û àCredits€should€not€be€based€solely€on€historical€emissions,€but€should€beÏbased€on€equitable€factors,€including€the€need€to€preserve€opportunities€forÏeconomic€development€on€tribal€lands.€In€general,€these€lands€are€currentlyÏlacking€in€economic€bases€and€have€not€contributed€to€the€visibilityÏproblems.òò׃I×Ý ƒ"#ÃÝòòÚ  Ú16Ú  ÚóóÝ  Ý×  ×Ð$X"ûÝ ûÝ  ÐóóÌA€corollary€to€the€idea€that€tribes€should€not€be€punished€for€a€lack€of€historical€emissionsÏis€the€proposition€that€allocations€to€tribes€should€not€be€tied€to€the€performance€of€existingÏsources€in€meeting€or€not€meeting€projected€emission€reductions€between€1990€and€2000.€ÏIn€other€words,€the€determination€of€the€appropriate€level€of€allocations€to€tribes€should€notÐ ¤(ô#' Ðbe€dictated€by€the€size€of€the€ð ðheadroomðð€(defined€as€one„half€of€emissions€reductions€inÏexcess€of€13%€between€1990€and€2000).ÌÌIn€order€to€account€for€these€concerns,€and€pending€the€resolution€of€the€uncertainty€inÏregard€to€federal€implementation€of€visibility€provisions€in€Indian€country,€the€tribal€caucusÏis€currently€in€the€process€of€developing€quantitative€methodologies€for€determiningÏappropriate€allocations€to€tribes.€€Some€concepts€under€consideration€include€utilizing€dataÏon€tribal€resource€contributions€to€western€electricity€generation,€including€foregoneÏdevelopment€opportunities;€utilizing€environmental€externality€estimates€to€account€for€pastÏdamages€and€future€prevention€costs,€or€using€some€form€of€population€based€algorithm.ò òÐ ü L  ÐÌó óTribal€participants€recognize€the€conceptual€difficulties€of€translating€the€equity€concernsÐ Ü,  Ðdiscussed€above€into€a€discrete€number€or€percentage€of€emission€credits,€and€ask€thatÏother€Forum€members€give€serious,€good€faith€consideration€to€allocation€options€as€theyÏare€put€forward€by€the€tribal€Forum€members.Ìà û àÌÌà û àÔ  Ô5.2€€òòSOòò2óó€Emission€Reduction€Targets€„Tribal€Caucus€PositionÔ ÉšÔóóÐ d´ ÐÌA€major€issue€on€which€the€Market€Trading€Program€is€striving€to€reach€consensus€is€theÏdetermination€of€SOòò2óó€ð ðtargetsðð€which€would€ð ðtriggerðð€the€implementation€of€an€emissionsÐ (x Ðtrading€program.€€At€question€are€the€accepted€endpoint€reduction€goal,€as€well€as€interimÏtarget€points,€between€2000€and€2040.€€In€particular,€disagreement€exists€regarding€howÏsteeply€the€line€should€decline€in€the€initial€15„20€year€period.€€ÌÌTribal€participants€continue€to€support€their€position€taken€during€the€GCVTC€process,€thatÏall€uncontrolled€and€under„controlled€stationary€sources€should€be€subject€to€emissionÏcontrols€that€are€equivalent€to€those€imposed€on€fully€controlled€sources.€€Such€a€positionÏis€consistent€with€the€GCVTC€assessment€criteria€in€that€it€imparts€equity€among€sources,Ïand€equity€of€impacts€on€communities€surrounding€the€sources.€€Additionally,€such€anÏapproach€would€assist€the€dilemma€regarding€emission€reduction€targets€and€ð ðshape€of€theÏcurve.ðð׃‰×Ý ƒ"#ÃÝòòÚ  Ú17Ú  ÚóóÝ  Ý×  ×Ð L!œ ÐÌTherefore,€owners€and€operators€of€stationary€sources€are€called€upon€to€work€€togetherÏwith€tribal,€state,€and€federal€government€officials€to€develop€strategies€for€controllingÏemissions€from€all€under„€controlled€and€uncontrolled€sources.ò òÐ ü$L # Ðó óÌTribal€participants€advocated€strongly€during€the€GCVTC€process,€and€continue€to€supportÏthe€need€to€include€air€emission„induced€health€impacts€in€the€evaluation€of€costs€andÏbenefits€of€the€various€air€pollution€management€scenarios,€including€that€of€marketÐ ¬(ü#' Ðtrading.ò òó ó€€The€health€impacts€of€air€emissions,€and€subsequent€health€benefits€in€reducingÐ ° Ðthose€emissions,€must€be€considered€when€assessing€the€endpoint€reduction€goal€andÏinterim€targets.€€Although€charged€with€addressing€visibility€reduction,€the€GCVTC,€andÏnow€the€WRAP,€must€address€òòallóó€costs€and€benefits€of€emission€reduction€scenarios,Ð tÄ Ðincluding€health€costs€of€emissions€on€people€who€live€in€or€visit€impacted€areas.€òòóóInÐ `° Ðassessing€the€effects€of€various€target€levels,€the€Forum€should€recall€the€followingÏcomments€of€the€GCVTC:€ð ð(w)hile€the€Commission€has€sought€to€distribute€the€burden€ofÏits€recommendations€equitably,€inadequacies€in€the€primary€and€secondary€assessmentÏprocess€(e.g.,€lack€of€emissions€data€for€tribal€lands,€inability€of€the€economic€model€toÏanalyze€areas€smaller€than€a€county,€and€lack€of€tribal€data€inputs€to€economic€modeling)Ïrequire€continued€vigilance€to€guarantee€strong€application€of€the€equity€criterion€in€allÏimplementation€plans€and€in€monitoring€the€impact€of€the€CommissionððsÏrecommendations.ðð׃º×Ý ƒ"#ÃÝòòÚ  Ú18Ú  ÚóóÝ  Ý×  ×€€These€dual€problems€of€lack€of€tribal€data€and€the€inability€of€the€IASÐ À  Ðto€analyze€impacts€on€tribal€lands€continue€to€remain€a€source€of€concern€to€tribes€andÏshould€be€considered€in€both€the€formulation€and€the€analysis€of€any€market€tradingÏprogram€the€MTF€may€develop.Ìà û àÌà û àÔ  Ô5.3€€òòProgram€Administration€„€Tribal€Caucus€PositionÔ ƧÔóóÐ \¬ ÐÌÌÓ$ ?Kþ$ÓWhile€focusing€on€basic€program€elements€such€as€the€quantification€of€emission€targets,Ïthe€species€of€pollutants€to€be€traded,€and€the€universe€of€sources€affected,€the€MarketÏTrading€Forum€has€also€begun€to€identify€the€myriad€technical€and€legal€issues€involvedÏin€the€actual€administration€of€a€market€trading€program.€€The€tribal€caucus€offers€theÏfollowing€preliminary€comments€on€certain€currently€emerging€aspects€of€programÏadministration.ÌÌà0 ï àÔ  Ô5.3.1€òòType€of€Regional€AgreementÔ (ªÔóóДäï(#ï(# ÐÌThe€Forum€is€currently€considering€the€use€of€an€interstate€compact,€a€memorandum€ofÏunderstanding,€or€state€and€tribal€implementation€plans,€or€some€combination€of€theseÏinstruments,€as€a€mechanism€to€insure€consistency€across€jurisdictions€in€the€tradingÏprogram.ÌÌAn€overriding€concern€of€the€tribal€caucus€is€that€whatever€mechanism€chosen€mustÏprovide€flexibility€for€delayed€entry€into€the€program€of€tribes€which€are€not€signatories€toÏthe€original€agreement.€€In€this€regard,€the€provisions€of€the€regional€agreement€mustÏprovide€for€the€preservation€of€any€emission€credits€a€tribe€may€be€entitled€to€until€suchÏtime€as€the€tribe€decides€to€participate€in€the€program.ÌÌà0 ï àÔ  Ô5.3.2€Model€RuleÔ ?­ÔÐ)à$(ï(#ï(# ЇIn€order€to€insure€the€inter„jurisdictional€consistency€necessary€to€an€effective€tradingÏprogram,€the€Forum€is€developing€a€model€rule€on€which€states€and€tribes€will€base€their€Ïown€regulations.€The€model€rule€will€identify€provisions€for€which€some€variability€betweenÏjurisdictions€is€acceptable.€€In€designing€this€model€rule,€care€must€be€taken€to€assure€thatÏthe€integrity€of€the€tribal€provisions€of€the€market€program€as€envisioned€by€the€Forum€isÏpreserved,€and€to€ensure€that€no€state€infringements€on€tribal€sovereignty€are€permitted.€ÏÌÌFor€example,€the€model€rule€might€provide€some€flexibility€to€states€to€re„distributeÏemission€credits€accruing€to€existing€sources€under€the€formula€determined€by€the€Forum.€Ï(Such€re„allocation€could€serve€policy€ends€such€as€encouraging€development€in€ruralÏareas€or€of€renewable€energy€sources).€€If€so,€the€model€rule€provisions€and€their€interplayÏwith€the€program€administration€mechanism€must€be€such€that€state€decisions€to€reallocateÏdo€not€alter€the€Forumððs€intended€allocations€to€tribes,€either€with€or€without€existingÏsources,€within€the€geographical€area€of€the€state.€€€Ìò òà€(#(#K(#àˆÌØØÔ  Ô6.0à0 ï àSUMMARYÔ 8²Ôó óÐxÈï(#ï(# ÐÌThrough€this€position€paper,€the€NTEC€Tribal€Caucus€has€€sought€to€convey€the€reasonsÏthat€Indian€Tribes€require€unique€and€specific€consideration€in€the€development€andÏimplementation€of€an€air€emission€market€trading€framework.ÌÌIf€an€equitable€air€emission€market€system€is€to€be€implemented,€it€must€be€developed€toÏaccount€for€Tribal€concerns€and€it€cannot€jeopardize€tribal€sovereignty.€€€Any€viable€marketÏtrading/banking€structure€developed€by€the€WRAP€must€provide€adequate€considerationÏto€tribal€communities€for€their€existing/historic€lack€of€pollution€emissions.€€€In€establishingÏsuch€an€emission€trading/banking€structure,€adequate€compensation€must€be€given€for€theÏquality€of€life€and€health€impacts€to€tribal€communities,€as€well€as€to€the€lack€of€economicÏbenefit€resulting€from€non„Indian€pollution€sources.€€€Additionally,€any€future€market€tradingÏprogram€must€not€interfere€with€traditional€Indian€beliefs€and€ways€of€life,€must€allow€forÏtribal€administrative€involvement,€and€must€not€impair€a€tribeððs€right€to€developÏeconomically.€ÌÌThe€NTEC€Tribal€Caucus€does€not€represent€the€Tribes€within€the€Transport€Region,€butÏrather,€supports€the€rights€of€all€Tribes€to€determine€what€is€in€their€own€best€interest.€€WeÏwish€to€ensure€the€right€of€all€Indian€people€to€breathe€clean€air,€to€have€a€healthy€andÏhigh€quality€of€life,€to€benefit€adequately€from€economic€development€on€their€lands,€andÏto€participate€in€the€administration€of€any€air€emission€system€as€they€so€choose.€ÌÌÌÌÌÌà€(#(#K(#àÔ_ ԈРd,´'+ ÐÑ6ÏLÑâ 6âÑ tÑâ 6âÑ  ÑÌÓ  Óò òÔ  ÔATTACHMENT€A€Ð œì ÐÌ€DESCRIPTION€OF€VISIBILITY€PROVISIONS€IN€THE€CLEAN€AIR€ACTòò1Ô ¹Ôóóó óÐ „Ô ÐÓö¸ÓÌÒÀ°ÒÒÀ°ÒÌThe€Clean€Air€Act€contains€specific€provisions€regarding€visibility,€of€which€the€Grand€CanyonÏCommission€process€is€only€a€part.€(These€provisions€are€contained€in€sections€169A€and€169BÏof€the€Clean€Air€Act,€42€U.S.C.€ðððð€7491,€7492.)ÌÌThese€sections€of€the€Clean€Air€Act€provide€for€the€following:ÌÌ1)€€€Require€EPA€to€publish€a€list€of€national€parks€and€wildernesses€where€visibility€is€anÏimportant€value.ÌÌ2)€€€€Require€EPA€to€issue€regulations€that:€a)€ensure€"reasonable€progress"€toward€meeting€aÏnational€goal€of€the€prevention€of€any€future,€and€remedying€of€any€existing,€impairment€ofÏvisibility€in€the€areas€listed€above;€b)€require€states€and€tribes€to€include€"reasonable€progress"Ïmeasures€in€their€SIPs/TIPs.€These€measures€must€include€requiring€each€major€stationaryÏsource€that€is€found€to€cause€or€contribute€to€visibility€impairment€in€any€such€area€to€installÏ"best€available€retrofit€technology"€("BART").ÌÌ3)€€€Authorize€EPA€to€establish€visibility€transport€regions€and€commissions,€and€require€EPAÏto€establish€a€visibility€transport€region€and€commission€for€the€Grand€Canyon.ÌÌ4)€€€Require€each€such€commission,€within€4€years€of€its€establishment,€to€issue€a€report€to€EPAÏrecommending€what€measures,€if€any,€should€be€taken€to€remedy€adverse€impacts€on€visibilityÏin€the€region.€The€commission's€report€must€address€the€following:ÌÌà0 ÿ àà À àa)€€€à ÿ àthe€establishment€of€clean€air€corridors,€including€the€imposition€of€new€source€reviewÐ „Ô Ðrequirements€in€such€corridors;Ð ÿ$ÿ$ ÐÌØ€,ØÝ‚2ŽÿÝÝ  ÝÝ‚2ŽÀÝÚƒ,ÚbÚ  Ú)à0 ÿ àÝ  Ýthe€promulgation€of€regulations€containing€long€range€strategies€for€addressing€regionalÐ H"˜  Ðhaze.݃2ŽÀ*ÀÝÛ€,یРÿ$ÿ$ ÐŒÝ  ÝÌÓ! ¤?!Ó5)€€€€Require€EPA€to€issue€regulations€addressing€regional€haze€and€including€criteria€forÏmeasuring€"reasonable€progress"€within€18€months€of€receiving€a€Ó¤Óvisibility€commission€report.ÌÌÓ dÓIn€1979,€EPA€issued€a€list€of€areas€where€visibility€is€an€important€value€(40€C.F.R.€part€81,Ïsubpart€D).€€€EPA€also,€in€1980,€issued€regulations€with€respect€to€single€sources€of€visibilityÏimpairment€(40€C.F.R.€ðð€51.300€„€51.307),€but€not€as€to€regional€haze.ÌÌEPA's€failure€to€issue€regional€haze€regulations€led€to€creation€of€GCVTC.ÌÌØ€ Øò ò___________________ñ 3ñÐ X-¨(, Ðñ 3ñó ó1à0 $ àò òà0@$òÚ àó óMemorandum€from€Ô_ ÔJ.E.Ô_ Ô€Grant,€5/20/96ò òÐL.œ)-$$$$ ЇÒ°À¾¹ÒÒ°À°¹ÒÒà°ÒÒаÒÓ  ÓÔ  ÔATTACHMENT€B€„€CHRONOLOGY€OF€COMMISSION/WRAP€ACTIVITIES€Ì&€TRIBAL€INVOLVEMENTÔ ÊÄÔòòó óÐ ¤ô ÐÓ¾ÄÓÔ_ ÔÔ_ ÔÌÌóó1.€€€€Grand€Canyon€Visibility€Transport€Commission€(GCVTC)€established€in€November€1991Ð pÀ ÐÌà0 D àa..€The€Commission€consisted€of€governors€from€Arizona,€California,€Colorado,€New€Mexico,ÏNevada,€Oregon,€Utah€and€Wyoming.Ð D%D% ÐÌà0 D àb.€In€the€Fall€of€1992,€the€Commission€created€five€committees;€the€Operations,€PublicÏAdvisory,€Alternatives€Assessment,€Technical,€and€Communications€Committees.Ð D%D% ÐÌà0 D àc.€The€Commission€and€its€Committees€met€during€1993;€however,€tribes€were€not€involvedÏat€this€time.Ð D%D% ÐÌ2.€€€Initial€Tribal€ParticipationÌÌà0 D àa.€In€January€1994,€Hopi€Tribal€Chairman€Masayesva€and€other€tribal€leaders€sought€andÏreceived€recognition€from€the€GCVTC€of€the€need€for€tribal€representation€on€the€body€and€€Ïits€various€committees€and€subcommittees.Ð D%D% ÐÌà0 D àb.€Tribal€representatives€recommended€the€following:€1)€all€tribes€within€the€eight€state€areaÏshould€be€represented€on€the€Commission;€2)€tribes€within€the€"Golden€Circle"€should€beÏrepresented€on€the€Commission;€and€3)€tribes€should€be€equally€represented€on€theÏCommission.Ð D%D% ÐÌà0 D àc.€The€President€of€the€Navajo€Nation,€Chairman€of€the€Hopi€Tribe,€and€Governor€of€AcomaÏPueblo€„were€elevated€to€commissioner€status€in€1994.Ð D%D% ÐÌà0 D àd.€In€1995,€the€Chairman€of€the€Hualapai€Tribe€became€a€member€of€the€Commission€and€theÏExecutive€Director€of€the€Columbia€River€Inter„Tribal€Fish€Commission€became€an€ex„officioÏnon„voting€member.Ð D%D% ÐÌà0 D àe.€Each€commissioner€was€allowed€to€elect€five€representatives€to€sit€on€the€Public€AdvisoryÏCommittee€(PAC).€Tribal€representatives€were€named€to€the€PAC,€as€well€as€to€otherÏcommittees.Ð D%D% ÐÌà0 D àf.€In€1995,€a€significant€number€of€tribal€representatives€were€added€to€the€various€committeesÏand€subcommittees.Ð D%D% ÐÌÓ! d­d!Óà0 D àà à à3.à D àRecognition€of€late€Tribal€involvement€in€the€GCVTC€process€and€need€for€increased€tribalÐ  )ð$( Ðparticipation€lead€to€EPA€financial€assistance,€by€way€of€a€grant€to€the€National€TribalÏEnvironmental€Council€(NTEC).Ð D%D% ÐÌà0 D àa.€NTEC€sponsors€two€informational€meetings€in€Spring€of€1995.Ð D%D% ÐÐ <.Œ)- Ðà0 D àb.€"Status€Report€to€the€National€Tribal€Environmental€Council€on€the€Studies€andÐ D%D% Ðà D àProgress€of€the€GCVTC,€1995",€Walsh€Environmental€Scientists€&€Engineers,Ìà D àInc.,€is€prepared€and€distributed.ÌÌà0 D àc.€Informational€video€on€the€GCVTC€is€developed€and€sent€to€all€TribesÐ D%D% Ðà D àwithin€the€transport€region.ÌØ€,ØÌØØÓL€ µh((†LÓÝ ‚3£ ÝÝ  ÝÝ‚3£ÑÝÔ2µhÔÚ  Ú4Ú  Ú.Ô3  Ôà0 D àÝ  ÝNTEC€sponsors€Tribal€Steering€Committee€and€Technical€Subcommittee,€in€July€1995,€toÐ $ t Ðdevelop€a€plan€to€conduct€technical€and€policy€analyses€necessary€to€assess€tribal€impactsÏand€to€promote€effective€tribal€participation€in€the€GCVTC€process.݃3£ÑFÑ݌РD%D% ÐŒÝ  ÝÌÝ ‚3£ ÝÝ  ÝÓ$ X'd­$Óà0 8 àà à àÝ‚3£âÒÝÔ2µhÔÚ  Ú5Ú  Ú.Ô3  Ôà088%8%àÝ  ÝTribal€Steering€Committee€and€Subcommittee€meet€regularly€and€are€active€throughout€theÐ Ô$  Ðremainder€of€GCVTC€process.݃3£âÒIÓ݌Р8%8% ÐŒÝ  ÝÌà0 8 àa.€Preliminary€GCVTC€analysis€is€prepared€for€Tribal€Commissioners€and€tribes€in€NovemberÏ1995.Ð 8%8% ÐÌà0 8 àb.€€"Steering€Committee€Report€on€the€GCVTC's€Options€for€Improving€Western€Vistas"€isÏpublished€by€NTEC,€in€January€1996,€and€distributed€to€all€tribes€in€the€transport€region.Ð 8%8% ÐÌà0 8 àc.€Tribal€Steering€Committee€actively€coordinates€and€directs€participation€in€PAC€and€€otherÏGCVTC€committees.Ð 8%8% ÐÌà0 8 àd.€NTEC€contracts€with€Center€for€Applied€Research€(CAR)€and€the€Institute€for€Tribal€ÏEnvironmental€Professionals€at€Northern€Arizona€University€for€technical€assistance€in€GCVTCÏprocess€analysis€and€development€of€Tribal€comments€and€positions.Ð 8%8% ÐÌà0 8 àe.€Tribal€Steering€Committee€representatives€participation€in€PAC€Recommendations€ReportÏdevelopment;€final€tribal€comments€are€incorporated€into€Report€at€final€PAC€meeting€on€MayÏ3,€1996.Ð 8%8% ÐÌà0 8 àf.€Tribal€participants€strive€to€ensure€integrity€Of€PAC€Report€during€period€leading€up€to€andÏthrough€Operations€Committee€meeting€on€May€14,€1996.Ð 8%8% ÐÌà0 8 àg.€Tribal€steering€committee€briefs€Tribal€Commissioners€on€June€9,€1996,€prior€to€finalÏGCVTC€Meeting,€on€June€10,€1996.€€€€€€€Ð 8%8% ÐÌñ3ñ6.ñ3ññ3ñ€ñ3ññ3ññ3ññ3ññ3ñà0 8 àñ3ññ3ññ3ñÝ ‚3£ ÝÝ  ÝÝ‚3£öÙÝÔ2µhÔÚ  Ú6Ú  Ú.Ô3  Ôà0 8 àÝ  Ýñ3ññ3ñ€€€ñ3ñThe€Western€Regional€Air€Partnership€(WRAP)€is€formed€to€promote€and€monitor€theÐ Ì&"% Ðñ3ñÏ€€€€€€€€€€€€€€€€€€€€Ïñ3ñimplementation€of€the€recommendations€resulting€from€the€Grand€Canyon€Visibility€TransportÏñ3ñÏ€€€€€€€€€ñ3ñCommission€and,€with€the€concurrence€of€state,€tribal,€and€federal€members,€to€engage€in€ñ3ñ€€€ñ3ñÏñ3ñ€€€€€€€€€€€ñ3ñother€common€regional€air€quality€issues.݃3£öÙ!Ú݌Р8%8% ÐŒÝ  ÝÌñ3ñØØñ3ñÓL€ ›U¤((LÓÝ ‚3£ ÝÝ  ÝÝ‚3£ÖÜÝÔ2U¤ÔÚ  Ú7Ú  Ú.Ô3  Ôà0 8 àÝ  ÝTribes€and€states€are€given€equal€membership€on€the€WRAP.€€Additionally,€the€SecretariesÐ h+¸&* Ðof€the€Dept.€of€Interior€and€Agriculture€are€voting€members,€and€the€Administrator€of€theÏEnvironmental€Protection€Agency€is€a€non„voting€member.݃3£ÖÜÝ݌Р8%8% ÐŒÝ  ÝÐ ,.|)- Ðà0 8 àa.€The€following€tribes€are€members€of€the€WRAP:€€Pueblo€of€Acoma;€Campo€Band€of€ÏKumeyaay€Indians;€Cortina€Indian€Rancheria;€Hopi€Tribe;€Hualapai€Nation,€Jicarilla€€€€€€€€€€€€€€ÏApache€Tribe;€N.€Cheyenne€Tribe;€Salish€and€Kootenai€Confederated€Tribes;€Pueblo€of€€€€€€€ÏSan€Felipe;€and€Shoshone„Bannock€Tribes€of€Fort€Hall.Ð 8%8% ÐÌà0 8 àb.€The€following€states€are€members€of€the€WRAP:€Arizona,€Colorado,€Idaho,€Montana,€€NewÏMexico,€Oregon,€Utah,€Washington,€and€Wyoming.Ð 8%8% ÐÌ8.€à0 8 àThe€WRAP€creates€various€committees€and€forums€to€discuss€and€advance€theÐ  ` Ðrecommendations€of€the€GCVTC.Ð 8%8% ÐÌØØÓL€ e¤((›LÓÝ ‚3£ ÝÝ  ÝÝ‚3£ÇáÝÔ2e¤ÔÚ  Ú9Ú  Ú.Ô3  Ôà0 8 àÝ  ÝNTEC€is€funded€by€the€EPA€to€assist€with€tribal€WRAP€and€MTF€participation,€coordinationÐ Ô$  Ðand€communications,€including€that€of€the€Tribal€Caucus݃3£Çáòá݌РÀ 8%8% ÐŒÝ  Ýò òà@ÌÌ ôàÔ  ÔATTACHMENT€C€„€HISTORY€OF€TRIBAL€AUTHORITIES,€JURISDICTION,€ANDó óˆÐ ° Ðò òà@¢ ¢ ôàENVIRONMENTAL€MANAGEMENTÔ GãԈР¤ô Ðó óÓÙÓÌÓäÓò òòòÌIntroductionóóó óÐ xÈ ÐÓ  ÓÌGovernments€from€British€and€Spanish€colonies€in€the€western€hemisphere€began€negotiating€treatiesÏwith€Indian€tribes€during€the€17òòthóó€century.€€The€fact€that€they€accorded€those€tribal€governments€theÐ D ” Ðsovereign€status€of€equivalent€governments€is€substantiated€by€the€existence€of€those€agreements.ÌÌThe€Articles€of€Confederation€(1781)€gave€the€federal€government€ð ðsole€and€exclusiveðð€authority€overÏIndian€affairs,€ð ðprovided€that€the€legislative€right€of€any€State€within€its€own€limits€be€not€infringed€orÏviolated.ððÌÌThe€U.S.€Constitution€gave€power€over€Indians€to€Congress€under€the€Indian€Commerce€Clause,ÏArticle€I,€Section€8,€Clause€3:€ð ðThe€Congress€shall€have€Power......to€regulate€Commerce€with€foreignÏNations,€and€among€the€several€States,€and€with€the€Indian€Tribes.ðð€€òò(This€establishes€theÐ à Ðsubordination€of€state€control€over€Indians€to€federal€power.€€The€United€States€continued€the€policyÏof€negotiating€treaties€with€the€Indian€Tribes).óóÐ h¸ ÐÌThree€Supreme€Court€decisions€known€as€the€Marshall€Trilogy€established€the€shape€of€federalÏIndian€law€and€policy.€€Those€opinions€are:ÌÌòòJohnson€v.€Ô_ ÔMððIntoshÔ_ Ôóó€(1823)€„€Established€the€right€of€the€United€States,€as€the€successor€of€England,Ð T Ðthe€preemptive€right€to€procure€Indian€land€by€purchase€or€conquest€according€to€the€Doctrine€ofÏDiscovery.€€The€United€States€has€exclusive€right€to€extinguish€aboriginal€tribal€right€of€possessionÏand€may€do€so€without€compensation.€€However,€when€title€is€ð ðrecognizedðð€by€treaty€or€statute€thenÏa€taking€must€be€compensated€pursuant€to€the€fifth€amendment.ÌÌòòCherokee€Nation€v.€Georgiaóó€(1831)€„€Established€the€Cherokee€Tribe€as€a€ð ðdistinct€political€societyðð,Ð ŒÜ Ðbut€not€a€foreign€state€within€the€meaning€of€Article€III€of€the€Constitution.€€It€is€more€like€a€ð ðdomesticÏdependent€nationðð€with€the€relation€of€the€tribe€to€the€Federal€government€like€that€of€ð ðward€toÏguardian.ððÌÌòòWorcester€v.€Georgiaóó€(1832)€„€State€law€could€not€interfere€with€the€relations€established€betweenÐ ($x" Ðthe€Federal€government€and€the€tribes,€and€attempts€to€do€so€were€ð ðrepugnant.ðð€€Tribes,€as€nations,Ïwere€ð ðclaiming€and€receiving€the€protection€of€one€[nation]€more€powerful.ððÌÌIn€1871,€Congress€provided€that€the€United€States€would€no€longer€make€treaties€with€Indian€tribes.€ÏAll€rights€under€existing€treaties,€however,€were€protected.€€Although€treaties€were€no€longer€beingÏmade€the€United€States€continued€to€deal€with€Indian€tribes€in€much€the€same€manner,€throughÏagreements€included€in€statutes€and€executive€orders.ÌÌòòThe€General€Allotment€Act€of€1887€(1887„1934)óóÐ t,Ä'+ ÐÌThe€General€Allotment€Act,€or€Ô_ ÔDawesÔ_ Ô€Act,€was€one€of€the€most€significant€federal€statutes€in€the€fieldÐ L.œ)- Ðof€Indian€Law.€€The€Act€delegated€authority€to€the€Bureau€of€Indian€Affairs€(BIA)€to€allot€parcels€ofÏland€to€individual€Indians€and€sell€off€non„allotted€lands€to€non„Indians€for€homesteading.€€Indian€landÏholdings€went€from€138€million€acres€in€1887€to€48€million€acres€in€1934.€€The€Act€also€created€theÏproblem€of€ð ðcheckerboardðð€patterns€of€land€ownership€within€the€exterior€boundaries€of€IndianÏreservations.ÌÌDuring€this€period,€the€exercise€of€tribal€governmental€authority€was€discouraged€and€the€local€BIAÏsuperintendent,€in€many€areas,€governed€the€reservations.ÌÌòòIndian€Citizenship€Act€of€1924óóÐ ü L  ÐÌIn€1924,€the€United€States€Congress€voted€to€extend€citizenship€to€all€Indians€in€the€United€States.€ÏSome€Indians€were€already€citizens€based€on€treaty€provisions,€statutes,€or€the€receipt€of€allottedÏland.€€Citizenship€was€seen€as€a€tool€to€promote€assimilation.€ÌÌòòThe€Indian€Reorganization€Act€of€1934óóÐ „Ô  ÐÌIn€1934,€the€Indian€Reorganization€Act€(IRA)€was€passed,€based€on€the€Ô_ ÔMerriamÔ_ Ô€Report€of€1928,Ïwhich€substantiated€the€failures€of€the€Allotment€Act€and€the€loss€of€Indian€lands.€€This€Act€alsoÏprovided€the€authority€to€the€Secretary€of€the€Interior€to€accept€additional€land€into€trust.€€Under€theÏAct,€tribes€were€encouraged€to€adopt€constitutions€and€to€form€federally„chartered€corporations.€€TheÏmain€effect€of€the€IRA€was€to€promote€the€exercise€of€self„governing€powers€by€tribes.€€On€someÏreservations,€traditional€leaders€were€excluded€from€this€process,€resulting€in€internal€splits€thatÏcontinue€to€this€day.ÌÌòòThe€Indian€Claims€Commission€ActóóÐ ¼  ÐÌIn€1946,€Congress€created€the€Indian€Claims€Commission€for€the€express€purpose€of€providing€IndianÏtribes€an€opportunity€to€obtain€damages€for€the€loss€of€tribal€lands.€€The€Commission€only€providedÏfor€monetary€awards€and€not€recovery€of€land.€€This€Act€applies€only€to€claims€against€the€UnitedÏStates€and€does€not€cover€claims€against€non„federal€entities.€€This€means€that€claims€of€easternÏtribes,€which€are€often€against€states,€counties€and€private€entities€are€not€included€„„€tribes€canÏpursue€their€claims,€including€land€recovery,€in€the€appropriate€forum.€€Many€of€the€federal€casesÏhave€still€not€been€resolved.ÌÌòòThe€Termination€ActóóÐ ô$D # ÐÌIn€1953,€Congress€passed€House€Concurrent€Resolution€(Ô_ ÔHCRÔ_ Ô)€108€calling€for€the€ending€of€theÏspecial€relationship€of€tribes€to€the€United€States€as€soon€as€possible.€€€Most€of€the€tribes€terminatedÏunder€the€Act€have€subsequently€had€their€federal€recognition€restored,€although€many€lost€significantÏlands,€resources,€and/or€authority€in€the€process.ÌÌòòThe€Indian€Civil€Rights€ActóóÐ h+¸&* ÐÌIn€1968,€the€Indian€Civil€Rights€Act€was€passed,€extending€the€individual€protections€of€the€Bill€ofÏRights€to€Indians€and€non„Indians€in€dealing€with€tribal€governments.€€Under€the€Act,€no€Indian€tribeÐ ,.|)- Ðexercising€powers€of€self€government€shall€enact€or€enforce€any€law€which€denies€any€person€basicÏrights,€with€certain€exceptions.€€Most€notably€of€these€exceptions€is€that€tribal€governments€would€notÏbe€held€to€the€separation€of€church€and€state€required€of€non„Indian€governments.ÌÌòòIndian€Self„Determination€and€Education€Assistance€Act€of€1975óóÐ `° ÐÌAlso€known€as€PL€93„638,€this€Act€encourages€tribes€to€assume€administrative€responsibility€forÏfederally€funded€programs€that€were€designed€for€their€benefit€and€were€previously€administered€byÏthe€Bureau€of€Indian€Affairs€and/or€the€Indian€Health€Service.€€Education€and€health€programs€wereÏalso€expanded€under€this€Act.€€The€assumption€of€administrative€responsibility€by€tribes€is€still€beingÏexpanded€throughout€the€country.€€All€of€the€tribes€of€Region€IV€are€active€in€pursuing€theseÏdelegations.€€(For€most€tribes,€this€is€not€seen€as€a€delegation€of€federal€authority€to€the€tribes,€ratherÏa€ð ðreturnðð€of€the€authority€that€should€never€have€been€removed€from€tribes.)ÌÌòòò òHistory€of€Tribal€Environmental€Management€and€Regulationó óóóÐ ˜è  ÐÌHistorically,€traditional€tribal€environmental€management€has€suffered€under€decades€of€interferenceÏand€disruption.€€Evidence€exists€for€the€existence€of€regular€programs€of€burning€in€the€easternÏwoodlands€that€promoted€healthier€ecosystems.€€For€many€tribes,€the€methods€of€gathering€fromÏwoodland€resources€were€designed€to€enhance€the€resource.€€Traditional€practices€began€to€give€wayÏas€tribal€communities€adapted€to€the€more€intensive€agriculture€introduced€by€the€colonists.€ÏTraditional€practices€were€also€impaired€by€changing€political€boundaries,€relocations€and€federalÏprograms€designed€for€termination€or€assimilation.ÌÌTribal€program€regulatory€authority€was€not€included€in€the€original€federal€environmental€qualityÏlegislation.€€Tribal€lands€were€left€out€of€the€federal€environmental€management€scenario,€for€the€mostÏpart,€due€largely€to€the€focus€on€state€programs.ÌÌIn€1983,€the€President€issued€a€Federal€Indian€Policy€supporting€the€primary€role€of€tribalÏgovernments€in€matters€affecting€American€Indian€reservations.€This€policy€emphasized€two€themes:Ïthe€federal€government€will€pursue€the€principles€of€Indian€ð ðself„governmentðð;€and€will€work€with€tribalÏgovernments€on€a€ð ðgovernment„to„governmentðð€basis.ÌÌIn€1985,€tribes€began€to€pursue€the€changes€in€federal€law€that€would€allow€them€to€be€treated€withÏthe€same€standing€as€states,€for€the€purposes€of€funding€and€authority.€€(Tribes€had€and€haveÏinherent€authority€but€lacked€the€standing€of€federal€delegation€of€environmental€program€authority).€ÏBy€1987,€success€was€achieved€with€the€first€amendments€to€the€Clean€Water€Act,€and€by€1990,€mostÏof€the€other€major€acts€had€followed€suit€(Ô_ ÔCERCLAÔ_ Ô,€Safe€Drinking€Water€Act,€Clean€Air€Act).€€ÌÌEPA€Administrator€William€Ô_ ÔRuckelshausÔ_ Ô€issued€a€formal€Indian€Policy€and€implementation€guidanceÏin€1984,€outlining€the€role€of€EPA€in€working€with€tribal€governments€.€€In€1991,€EPA€AdministratorÏWilliam€Reilly€issued€a€concept€paper€on€the€Federal,€Tribal€and€State€role€in€the€Protection€andÏRegulation€of€Reservation€Environments.€€In€1994,€Carol€Browner€issued€a€tribal€action€memorandumÏto€address€gaps€and€to€improve€specific€areas€of€tribal€operations.€€Within€this€action€memorandumÏwas€a€specific€item€calling€for€the€Assistant€and€Regional€Administrators€to€take€steps€to€increase€theÏimplementation€of€and€to€ensure€compliance€with€environmental€programs,€in€partnership€with€theÐ 4.„)- Ðtribes€on€a€government„to„government€basis,€to€ensure€the€protection€of€human€health€and€theÏenvironment€on€tribal€lands.€ÌÌThe€efforts€of€some€tribal€governments€blossomed€under€resources€provided€them€through€the€EPA.€ÏStill,€many€other€tribes€were€so€limited€in€their€capability,€that€they€lacked€the€basic€structure€andÏresources€needed€to€proceed€under€even€one€of€the€major€Acts.€€In€1992,€Congress€authorized€theÏÔ_ ÔMultiMediaÔ_ Ô€Program€(later€Ô_ ÔreauthorizedÔ_ Ô€as€the€General€Assistance€Program),€to€provide€tribes€withÏenvironmental€program€start„up€and€management€capability.ÌÌò òòòRegulatory€Authorityóóó óÐ ü L  ÐÌA€critical€element€of€the€legal€authority€for€tribes€to€enforce€environmental€regulatory€programs€onÏmembers€and€non„members€is€the€civil€authority€tribal€governments€exercise.€€This€authority€and€itsÏlegal€basis€are€summarized€in€the€following€paragraph.ÌÌIndian€tribes€are€sovereigns€with€acknowledged€powers€of€self„government.׃þ×Ý ƒ"#ÃÝòòÚ  Ú19Ú  ÚóóÝ  Ý×  ×Ð ŒÜ  Ððð€€Sovereignty€secures€complete€tribal€authority€over€Indians€in€Indian€country.Ìðð€€For€non„Indians:Ì€€€1.€€No€criminal€jurisdiction.Ô_ Ô׃ÿ@×Ý ƒ"#ÃÝòòÚ  Ú20Ú  ÚóóÝ  Ý×  ×Ô_ ÔÐ P  Ѐ€€2.€€Civil€judicial€jurisdiction€over€non„Indian€activity€ð ðpresumptively€lies€in€the€tribal€court€€€€€€€€€€€€€€€Ï€unless€affirmatively€limited€by€a€specific€treaty€provision€or€€federal€statute.ððÔ_ Ô׃¸×Ý ƒ"#ÃÝòòÚ  Ú21Ú  ÚóóÝ  Ý×  ×Ô_ ÔÐ (x Ѐ€€3.€€Civil€regulatory€jurisdiction€over€non„Indians€may€be€based€on€either:Ìà 8 à€€€€€€€€a.€€Delegation€of€authority€to€a€tribe.Ô_ Ô׃0×Ý ƒ"#ÃÝòòÚ  Ú22Ú  ÚóóÝ  Ý×  ×Ô_ ÔÐ P Ðà 8 à€€€€€€€€b.€€Weighing€of€tribal€and€federal€interests,׃ä×Ý ƒ"#ÃÝòòÚ  Ú23Ú  ÚóóÝ  Ý×  ×Ð ì< Ðà0 8 à€€€€€€€€€€òò€€€ð ðA€tribe€may€regulate....the€activities€of€non„members€who€enter€consensual€€€€€€€€€€€€€Ð Ø( Ѐ€€€€€€€€€€€€€€€relationships€with€the€tribe€or€its€members,€through€commercial€dealing,€contracts,€Ï€€€€€€€€€€€€€€€€€€leases,€or€other€arrangements€[and]€may€also€retain€inherent€power€€to€exercise€€Ï€€€€€€€€€€€€€€€€€€€€civil€authority€over€the€€conduct€of€non„Indians€on€[non„€Indian]€fee€lands€within€its€Ï€€€€€€€€€€€€€€€€€€reservation€when€that€conduct€threatens€or€has€some€direct€effect€on€the€political€Ï€€€€€€€€€€€€€€€€€€€integrity,€the€economic€security,€or€the€health€or€welfare€of€the€tribe.ððóóÐtÄ8%8% Ðà0 8 à€€€4.€€The€federal€obligation€and€interest€in€protecting€and€developing€tribal€resources€is€€€€€€€€Ï€€€€€€€€€€€great.Ô_ Ô׃˜×Ý ƒ"#ÃÝòòÚ  Ú24Ú  ÚóóÝ  Ý×  ×Ô_ Ôò òÐL!œ8%8% ÐÌó óThese€legal€precedents€have€established€the€relationship€of€tribes€to€the€federal€government€as€oneÐ ,#|! Ðwhich€clearly€has€the€capability€to€accept€the€legal€authority€of€program€delegation€and€to€enforce€theÏprovisions€of€those€programs.€€Further,€even€without€program€delegation,€tribes€have€civil€authorityÏover€both€Indians€and€non„Indians€when€it€may€affect€certain€key€interests.ÌÌÐ  `° ÐÔ‡XJXXXJÔÑ€9BÑÑ€/ûOÑò òÔ  ÔATTACHMENT€D:ó ó€ò òÔ#†XJXXXJ#ÔNTEC€COMMENTS€ON€PROPOSED€REGIONAL€HAZE€REGULATIONSÔ RÔó óÔ‡¡X]kXXXJÔÐ ° ÐÌThe€Honorable€Carol€M.€BrownerÌAdministratorÌU.S.€Environmental€Protection€AgencyÌAir€&€Radiation€Docket€and€Information€CenterÌ401€M€Street,€Ô_ ÔS.W.Ô_ Ô€€Room€M„1500€(Mail€Code€6102)ÌWashington,€€D.C.€€20460Ìà€ðð@%àOctober€2,€1998ˆÌÌÌRe:à0 8 àDocket€No.€A„95„38;€Proposed€Regional€Haze€RegulationsÐÜ, 8%8% ÐÌDear€Administrator€Browner:Ô#†XJXX¡X]kÝ#ÔÔ‡¢X]kXXXJÔÐ ´  ÐÌOn€behalf€of€the€National€Tribal€Environmental€Council,€I€would€like€to€commend€EPA€for€responding€to€the€JuneÏ29òòthóó€letter€of€the€Western€Governorsðð€Association€and€to€encourage€you€to€pursue€the€approach€contained€in€theÐ xÈ ÐWGA€letter€and€reflected€in€EPAððs€draft€regulatory€language.€€Our€specific€comments€on€the€draft€language€willÏfollow€below.ÌÌÔ#†XJXX¢X]kÄ#ÔÔ‡¢X]kXXXJÔThe€National€Tribal€Environmental€Council€monitored€the€negotiations€which€led€to€WGA€consensus€proposal,Ð (x Ðand€facilitated€input€from€the€tribes€which€are€partners€in€the€Western€Regional€Air€Partnership€(WRAP).€€It€isÏimportant€to€recall€that€each€tribe,€as€a€sovereign€nation,€reserves€to€itself€the€right€to€comment,€and€NTEC€doesÏnot€purport€to€speak€on€behalf€of€tribal€governments.€€Nevertheless,€tribal€participation€in€the€Grand€CanyonÏVisibility€Transport€Commission€(the€ð ðCommissionðð)€did€establish€certain€principles€and€perspectives€whichÏinform€our€commentsÔ#†XJXX¢X]k˜#ÔÔ‡¢X]kXXXJÔ.Ð Ä ÐÌFirst,€tribal€participants€in€the€Commission€expressed€general€support€for€the€guiding€principles€andÏrecommendations€adopted€by€the€Commission.€We€believe€the€basic€strategy€of€the€WGA€approach,€entailing€theÏpromulgation€of€the€Commissionððs€recommendations€as€elements€of€implementation€plans,€€is€essential€in€orderÏto€make€the€Commissionððs€recommendations€reality.ÌÌÔ#†XJXX¢X]k-#ÔÔ‡¡X]kXXXJÔSecond,€tribal€participants€in€the€Commission€clearly€articulated€the€principles€of€co„management€which€mustÐ 8"ˆ  Ðguide€regional€cooperation:€respect€for€tribal€sovereignty,€recognition€of€the€Federal€Trust€Responsibility,€andÏconsideration€of€the€United€Statesðð€policy€of€€tribal€self„determination.€€These€principles€must€continue€to€guideÏthe€development€of€regional€air€planning,€and€€the€WGA€approach€provides€a€regulatory€framework€which€isÏconsistent€with€them.ñ3ñÌñ3ñÌFor€these€reasons,€we€support€the€WGA€approach.€€We€also€believe€that€the€draft€regulatory€languageÏsubstantially€captures€the€WGA€recommendations,€and€thus€we€support€the€promulgation€of€very€similar€languageÏin€the€final€rule.€€In€that€spirit,€we€offer€the€following€additional€comments.ÌÌÌòòPreamble€LanguageóóÐ \,¬'+ ÐÌà0 8 àThe€Notice€of€Availability€requests€comments€on€the€suggestions€for€preamble€language€contained€in€theÐ 4.„)- ÐWGA€letter.€€The€WGA€letter€is€a€carefully€crafted€document€representing€the€consensus€of€severalÏstakeholder€groups,€and€the€suggested€preamble€language€is€an€integral€part€of€the€document.€€In€addition,Ïthe€experience€of€the€transition€from€the€work€of€the€Commission€to€that€€of€the€Western€Regional€AirÏPartnership€has€indicated€the€importance€of€memorializing€understandings,€and€of€clarifying€EPAððsÏposition,€to€the€maximum€extent€possible.€€Therefore,€we€urge€you€to€include€all€suggested€preambleÏlanguage€which€is€consistent€with€EPA€policy€and€relevant€to€the€provisions€of€the€final€rule.Ð 8%8% ÐÌà0 8 àIn€particular,€we€urge€inclusion€of€the€suggested€preamble€language€on€the€following:Ð 8%8% ÐÌà0 8 àa)€òòTribal€Implementation€Plansóó.€€The€draft€regulatory€language€clarifies€that€membership€on€theÐ ü L  ÐCommission€is€not€a€pre„requisite€for€a€tribe€to€implement€a€visibility€plan,€and€that€implementation€of€theÏCommissionððs€recommendations€may€be€performed€according€to€the€modular€approach€of€the€TribalÏAuthority€Rule.€€The€suggested€preamble€language€should€be€included€in€order€to€further€clarify€that€aÏgiven€tribeððs€options€are€not€constrained€by€the€regulatory€strategy€adopted€by€the€state€in€which€the€tribeÏis€located,€and€that€EPA€intends€to€fulfill€its€trust€responsibility€through€federal€implementation€ofÏappropriate€emission€management€strategies€where€necessary.Ð 8%8% ÐÌà0 8 àb)€òòRationale€for€Promulgation€of€Regulations.óó€€Clearly,€EPA€would€not€promulgate€regulationsÐ \¬ Ðencapsulating€the€recommendations€of€the€Commission€if€it€did€not€believe€those€recommendations€wouldÏassure€reasonable€progress€in€visibility€improvement,€as€required€by€the€Clean€Air€Act.€€There€is€value,Ïhowever,€in€explaining€in€the€preamble€that€this€strategy€is€based€on€EPAððs€own€review€of€the€merits€ofÏthe€Commissionððs€work,€in€order€to€forestall€any€misapprehensions€that€EPA€has,€or€may,€delegate€itsÏresponsibility€to€define€reasonable€progress€and€assure€that€it€is€achieved.€Ð 8%8% Ðà 8 àÌà0 8 àà0!8%8%àÐ !%!% Ðà0 8 àc)€òòWRAP€to€be€Vehicle€for€Developing€Annexóó.€€The€WGA€proposal€calls€for€the€Commission€to€developÐ ¼  Ðan€ð ðAnnexðð€to€its€report€which€would€quantify€the€sulfur€dioxide€emission€reduction€targets€and€specifyÏother€elements€of€a€ð ðbackstopðð€emissions€trading€program.€€The€Commission€was€thought€to€be€theÏappropriate€legal€entity€to€accomplish€this€by€virtue€of€its€statutory€mandate€in€Clean€Air€Act€ðð€169B.€€TheÏWGA€letter€specifies,€however,€that€it€is€anticipated€that€the€WRAP€will€be€the€vehicle€for€developingÏthese€material.€Ð 8%8% ÐÌà0 8 à€An€acknowledgment€of€this€fact€in€the€preamble€would€provide€assurance€to€participants€in€the€WRAPÏthat€EPA€recognizes€the€legitimacy€of€this€regional€planning€effort€as€the€successor€to€the€Commission.€ÏThis€is€especially€important€to€tribes€in€that€the€WRAP€represents€a€step€forward€from€the€CommissionÏin€terms€of€equality€of€state€and€tribal€representation.Ð 8%8% ÐÌÌòòIncorporation€of€Clean€Air€Act€ðð€169AóóÐ ¸'#& ÐÌà0 8 àThe€Notice€of€Availability€notes€that,€upon€the€development€of€an€acceptable€annex€to€the€CommissionÏreport,€implementation€of€the€ð ðoverall€package€of€recommended€elements€would€assure€reasonableÏprogress€and€meet€the€basic€SIP€requirements€set€forth€under€section€169A€of€the€Clean€Air€Act€(CAA)Ï(including€a€long€term€strategy,€best€available€retrofit€technology,€and€other€measures€as€necessary).ðð€€Ð 8%8% ÐÌà0 8 àThe€final€regional€haze€rule€should€clarify€that€implementation€of€the€Commissionððs€report,€in€the€formÐ ,.|)- Ðof€prescribed€elements,€will€be€a€meansòò€óóof€satisfying€CAA€ðð€169A,€not€a€means€of€circumventing€orÐ ° Ðavoiding€it.€€Therefore,€for€the€annex€to€be€acceptable,€it€must€call€for€reductions€from€stationary€sourcesÏat€least€equivalent€to€those€which€would€result€from€the€application€of€ðð€169A,€including€best€availableÏretrofit€technology€(BART).€€This€is€implicit€in€proposed€ðð€51.309€(f)(1)(Ô_ ÔiÔ_ Ô),€which€states€that€the€annexÏmust€be€based€on€consideration€of€ð ðapplicable€requirements€under€Clean€Air€Act.ðð€€We€believe,€however,Ïthat€negotiation€of€the€annex€would€be€facilitated€by€òòexplicitlyóó€requiring€consideration€of€BART„levelÐ L œ Ðreductions.Ð 8%8% ÐÌà0 8 àThis€position€is€supported€by€the€recommendation€of€the€tribal€participants€in€the€Commission,€who€citedÏthe€application€of€control€standards€to€uncontrolled€and€under„controlled€existing€sources€as€their€number„¼one€recommendation€for€stationary€sources.Ð 8%8% Ðà 8 àÌIn€conclusion,€we€again€would€like€to€thank€you€for€taking€into€account€the€consensus„based€recommendations,Ïsubmitted€under€the€auspices€of€the€WGA,€in€the€process€of€developing€the€final€regional€haze€rule.€€We€alsoÏappreciate€this€additional€opportunity€to€comment€on€these€matters.€€ÌÌThe€Grand€Canyon€Visibility€Transport€Commission€represented€a€significant€development€in€the€involvementÏof€tribal€nations€in€regional€environmental€planning.€€Tribal€participants€contributed€significantly€to,€and€generallyÏsupported,€the€recommendations€of€the€Commission.€€We€believe€the€approach€captured€in€EPAððs€draft€regulatoryÏlanguage€offers€the€best€opportunity€to€achieve€the€policy€goals€of€the€Commission.€€We€therefore€urge€you€toÏadopt€this€approach€in€the€final€regional€haze€rule,€incorporating€our€comments€above.ÌÌThank€you€for€your€consideration€of€these€comments€and€your€commitment€to€clean€air€in€our€National€Parks€andÏWilderness€Areas.ÌÌSincerely,ÌÌ[signed]ÌJerry€PardillaÌExecutive€DirectorÌNational€Tribal€Environmental€CouncilÌÔ#†XJXX¡X]k]"#Ô