{"id":26518,"date":"2025-08-08T11:24:52","date_gmt":"2025-08-08T16:24:52","guid":{"rendered":"https:\/\/blogs.law.columbia.edu\/climatechange\/?p=26518"},"modified":"2025-08-08T15:28:56","modified_gmt":"2025-08-08T20:28:56","slug":"sabin-center-submits-comment-letters-on-epas-proposed-repeal-of-power-plant-ghg-emission-standards","status":"publish","type":"post","link":"https:\/\/blogs.law.columbia.edu\/climatechange\/2025\/08\/08\/sabin-center-submits-comment-letters-on-epas-proposed-repeal-of-power-plant-ghg-emission-standards\/","title":{"rendered":"Sabin Center Submits Comment Letters on EPA\u2019s Proposed Repeal of Power Plant GHG Emission Standards"},"content":{"rendered":"
<\/div>

On June 17, 2025, EPA published a proposed rule<\/a> to either repeal entirely, or significantly revise, a rule<\/a> issued in 2024 which set performance standards for fossil fuel-fired power plants to limit their greenhouse gas (GHG) emissions. This week, the Sabin Center filed three comment letters opposing the proposal. First, the Sabin Center commented<\/a> on EPA\u2019s primary proposal to repeal all GHG emissions standards for power plants. Second, the Sabin Center commented<\/a> on EPA\u2019s alternative proposal to repeal certain technology determinations which inform the performance standards. Third, the Sabin Center commented<\/a> on the harmful impacts of EPA\u2019s proposal on cities. This blog post summarizes EPA\u2019s regulation of GHG emissions from power plants, its proposed rule, and the Sabin Center\u2019s three comment letters.<\/p>\n

\"\"<\/a><\/p>\n

EPA\u2019s 2024 Rule<\/h4>\n

Under section 111<\/a> of the Clean Air Act, EPA must establish standards of performance for certain categories of stationary sources that \u201ccause[\u2009], or contribute[] significantly to, air pollution which may reasonably be anticipated to endanger public health or welfare.\u201d Pursuant to this statutory authority, EPA has been regulating power plants\u2019 GHG emissions since 2009. On May 9, 2024, EPA published a final rule<\/a> (referred to here as the \u201c2024 Rule\u201d) updating the performance standards for certain fossil fuel-fired power plants to limit their GHG emissions.<\/p>\n

To establish performance standards, EPA must<\/a> determine the emissions reductions that are achievable using the \u201cbest system of emission reduction\u201d (BSER) that has been \u201cadequately demonstrated,\u201d taking into account the cost of the reductions, non-air quality health and environmental impacts, and energy requirements. EPA then sets an emissions cap based on the emissions reductions that can be achieved through use of the BSER. Notably, however, regulated entities are not required to install the BSER; they can meet the emissions cap through other measures if they so choose.<\/p>\n

In the 2024 Rule, EPA set new performance standards based on updated BSER determinations for different sub-categories of fossil fuel-fired power plants. A summary of the BSER for each sub-category can be found\u00a0here<\/a>. Immediately after being issued, the 2024 Rule was challenged<\/a> by several states and industry groups in the U.S. Court of Appeals for the D.C. Circuit. One of the key issues in the litigation was whether EPA was right to determine that the BSER for certain coal- and natural gas-fired power plants was a carbon capture and storage (CCS) system that captures 90% of carbon dioxide (CO2<\/sub>) emissions. The challengers argued that such a system was not \u201cadequately demonstrated\u201d or \u201cachievable\u201d but EPA and various intervenors in the case disagreed. The Sabin Center filed two amicus briefs<\/a> in defense of the 2024 Rule in the litigation.<\/p>\n

After President Trump took office, EPA advised the court of its plans to initiate a rulemaking to revise the 2024 Rule and requested that the case be held in abeyance. The court granted that request on April 25, 2025.<\/p>\n

EPA\u2019s 2025 Proposed Rule<\/h4>\n

The Proposed Rule<\/a> issued by EPA in June contains two main proposals. First, EPA proposes to repeal all GHG emissions standards for fossil fuel-fired power plants based on EPA\u2019s determination that \u201cGHG emissions from fossil fuel-fired power plants do not contribute significantly to dangerous air pollution within the meaning\u201d of the Clean Air Act. Alternatively, EPA proposes to \u201crevise the BSER determinations\u201d from the 2024 Rule which rely on CCS technology.<\/p>\n

EPA accepted comments on the proposal through August 7, 2025 and has indicated<\/a> that it intends to release a final rule by December 2025. More detail on EPA\u2019s proposal and the Sabin Center\u2019s point-by-point rebuttals is included below but, generally speaking, EPA\u2019s Proposed Rule reflects an egregious misrepresentation of scientific evidence and pollution control technology, and an unreasonable and unjustified change in position since it issued the 2024 Rule a mere year ago.<\/p>\n

Comment on EPA\u2019s Proposal to Repeal All GHG Emissions Standards<\/h4>\n

The Sabin Center\u2019s first letter focuses on the legal and scientific errors underpinning EPA\u2019s determination that emissions from fossil fuel-fired power plants do not contribute significantly to air pollution that endangers public health and welfare. Contrary to EPA\u2019s unjustified determinations in the Proposed Rule, the clear causal link between power plant GHG emissions and pervasive harms to human health and welfare is established by a large body of scientific evidence.<\/p>\n

This comment letter makes two arguments in opposition to EPA\u2019s proposal:<\/p>\n

    \n
  • EPA\u2019s legal interpretation of the \u201ccause or contribute\u201d standard is inconsistent with the plain meaning of the statute. EPA has erred in interpreting the statute to require consideration of costs and other \u201cpolicy issues\u201d when determining whether emissions from a source category will cause or contribute to air pollution that may reasonable be anticipated to endanger public health and welfare. EPA\u2019s obligation under the Clean Air Act is to make a purely scientific judgment regarding the effects of air pollution attributable to the source category.<\/li>\n
  • EPA\u2019s factual determination on endangerment is directly refuted by a large body of scientific evidence demonstrating a clear causal link between the power sector\u2019s GHG emissions and harms to human health and welfare. There is overwhelming scientific consensus that climate change is causing pervasive and widespread harm to public health and welfare, including within the United States, and the harms attributable to fossil fuel-fired power plants surpass any reasonable threshold of significance. EPA has an obligation to engage with the available scientific information and reach a rational determination on endangerment in light of that information.<\/li>\n<\/ul>\n

    In support of these arguments, the Sabin Center\u2019s letter summarizes several scientific reports and studies, which were also submitted to EPA for inclusion in the administrative record.<\/p>\n

    Comment on EPA\u2019s Proposal to Repeal Certain BSER Determinations<\/h4>\n

    The second letter was submitted by the Sabin Center and seven CCS scientists and engineers. The letter focuses on EPA\u2019s erroneous finding that CCS with a 90% CO2<\/sub> capture rate is not \u201cadequately demonstrated\u201d and, therefore, cannot form the BSER for certain coal- and natural gas-fired power plants.<\/p>\n

    Just a year ago, in the 2024 Rule, EPA appropriately concluded that the technologies required to implement CCS with a 90% capture rate are adequately demonstrated and achievable, as required by the Clean Air Act. The Sabin Center and CCS experts strongly agree with that prior finding. As explained in the comment letter:<\/p>\n

      \n
    • The Proposed Rule articulates a new legal standard for establishing that an emissions control system has been \u201cadequately demonstrated\u201d that is wholly unsupported by the text and purpose of the Clean Air Act and case law interpreting it. EPA\u2019s new claim that technologies that require further \u201cenhancements and development that would take significant time\u201d are not adequately demonstrated is inconsistent with its own prior findings and those of the courts. The case law is clear that, given the \u201ctechnology forcing\u201d nature of the Clean Air Act, EPA can determine that a technology is adequately demonstrated even if it is not already routinely used in an industry and would require design improvements or operational advances before being widely implemented. The courts have further recognized that EPA can factor in the lead time afforded to regulated parties in deciding that the technology will be adequately available by the compliance date and have not imposed any limits on the amount of time EPA may allow.<\/li>\n
    • In any event, even applying EPA\u2019s new, flawed standard, CCS with a 90% capture rate is adequately demonstrated. CCS technologies have been successfully implemented at scores of commercial facilities worldwide, which establish that CCS with 90% capture is feasible. While EPA is correct that CCS is not currently in routine use within the power sector, it is ready to go and can be implemented without further technological enhancements and development. Commercial guarantees for such systems are available from reputable technology vendors.<\/li>\n
    • CCS technology is readily scalable. Existing projects were intended to, and did, validate capture technology at scale. While EPA is correct that the projects did not consistently capture 90% of CO2<\/sub> on a facility-wide basis, that was by design and not due to any flaw in the technology. Now that it has been proven effective and reliable, the technology is being deployed on a larger scale, with several new projects in development, as discussed below.<\/li>\n
    • The claim in the Proposed Rule that the BSER from the 2024 Rule is not cost reasonable is based on flawed cost analysis. As found in the 2024 Rule, the current deployment of CCS technology has proven to be cost effective in achieving 90% reductions in CO2<\/sub> The experience gained from existing projects has already enabled further CCS cost reductions.<\/li>\n<\/ul>\n

      Comment on the Harmful Impacts of EPA\u2019s Proposal on Cities<\/h4>\n

      The third letter submitted by the Sabin Center, together with Climate Mayors and C40 Cities, offers local governments\u2019 perspectives on the harmful impacts that cities would experience were EPA to adopt its proposal. The letter raises the following key points:<\/p>\n

        \n
      • GHG emissions from fossil fuel-fired power plants contribute significantly to costly and detrimental fiscal and public health impacts for cities across the United States. EPA\u2019s proposed finding that GHG emissions from fossil fuel-fired power plants do not contribute significantly to dangerous air pollution undervalues the damaging and dangerous impacts of this pollution experienced in cities. Cities experience more intense flooding, storms and extreme heat as a result of GHG emissions from the U.S. power sector, along with corrosion or destruction of infrastructure and significant costs to adapt to a changing climate and respond to extreme weather events. Without EPA limits on GHG pollution from the power sector, these impacts and costs fall in significant part at the feet of local governments.<\/li>\n
      • EPA proposes that its interpretation of \u201ccontributes significantly\u201d should be \u201cbased on the impact of the existing regulation,\u201d which is inconsistent with the text of the Clean Air Act and the case law that interprets it. But even under its own proposal, EPA regulation of GHG emissions from fossil fuel-fired electric generating units would have a significant impact on cities across the country, who rely on robust federal regulation to bolster their own greenhouse gas mitigation and climate adaptation efforts. Cities not only experience outsized impacts from the power sector\u2019s GHG emissions, they also lead the efforts necessary to adapt and mitigate those impacts. EPA regulation helps limit the power sector\u2019s significant contribution to global climate change, lessening the cost to cities to adapt augmenting local mitigation efforts. Moreover, federal regulation of power sector emissions has the indirect effect of reducing emissions from the buildings and transportation sectors, which are the top two sources of GHG emissions in U.S. cities<\/li>\n<\/ul>\n

        Adoption of EPA\u2019s Proposed Rule would be catastrophic for U.S. climate policy and would significantly impede our ability to achieve necessary GHG emissions reductions from the power sector to mitigate further climate damages.<\/p>\n","protected":false},"excerpt":{"rendered":"

        On June 17, 2025, EPA published a proposed rule to either repeal entirely, or significantly revise, a rule issued in 2024 which set performance standards for fossil fuel-fired power plants to limit their greenhouse gas (GHG) emissions. This week, the Sabin Center filed three comment letters opposing the proposal. 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