“We will not allow the administration to regulate what they have been unable to legislate,” he said. “This Christmas surprise is nothing short of a backdoor attempt to implement their failed job-killing cap-and-trade scheme,” he said.

In the conference call, Ms. McCarthy emphasized that the E.P.A. was not imposing a “cap-and-trade” system, a system that sets a ceiling on greenhouse gas pollution while allowing companies to trade permits, at a price that the market determines.

Approved last year in a House bill, cap-and-trade legislation died in the Senate this year. Later, opponents called it “cap and tax,” and it became a rallying cry for some midterm election candidates who were opposed to the expansion of government authority over industry and the economy.

The Natural Resources Defense Council, one of several parties that had threatened to sue if the E.P.A. did not set a timetable, welcomed Thursday’s announcement. “E.P.A. is doing precisely what is needed to protect our health and welfare and provide businesses certainty at a time when some would prefer to roll back the clock,” said David Doniger, the policy director for the group’s climate center.

“There is no question that a lot of the newcomers are going to come into town, especially the Republican house, and try to block this,” he said.

On one level, the E.P.A. seemed to be flexing its muscle after drawing criticism from environmental groups for recently deciding to delay issuing standards on conventional pollutants from industrial boilers. But by isolating only power plants and refineries, the agency also seemed to signal that for now, at least, it will go after only big industrial sources.

Coal-fired power plants already face a cascade of new regulations scheduled to take effect in coming months covering their emissions of sulfur dioxide and nitrogen oxides, mercury and other pollutants. By putting utilities on notice that it is adding carbon dioxide to the pollutant list, the E.P.A. is increasing pressure on utilities to shut down older coal-fired plants.