[Federal Register Volume 59, Number 54 (Monday, March 21, 1994)]
[Unknown Section]
[Page 0]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 94-6495]
[[Page Unknown]]
[Federal Register: March 21, 1994]
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DEPARTMENT OF THE INTERIOR
Office of Surface Mining Reclamation and Enforcement
30 CFR Part 943
Texas Permanent Regulatory Program
AGENCY: Office of Surface Mining Reclamation and Enforcement (OSM),
Interior.
ACTION: Final rule; approval of proposed amendment.
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SUMMARY: OSM is announcing its decision to approve, with certain
exceptions and additional requirements, a proposed amendment to the
Texas permanent regulatory program (hereinafter, the Texas program)
under the Surface Mining Control and Reclamation Act of 1977 (SMCRA).
The proposed amendment consisted of changes to Texas' existing
regulations pertaining to identification of interests and compliance
information, review of permit applications, conditions of permits,
Railroad Commission of Texas (Commission) review of outstanding
permits, and cessation orders. The amendment was intended to revise the
Texas program to be consistent with the corresponding Federal
standards.
EFFECTIVE DATE: March 21, 1994.
FOR FURTHER INFORMATION CONTACT:
James H. Moncrief, telephone: (918) 581-6430.
SUPPLEMENTARY INFORMATION:
I. Background on the Texas Program.
II. Proposed Amendment.
III. Director's Findings.
IV. Summary and Disposition of Comments.
V. Director's Decision
VI. Procedural Determinations.
I. Background on the Texas Program
On February 16, 1980, the Secretary of the Interior conditionally
approved the Texas program. General background information on the Texas
program including the Secretary's findings, the disposition of
comments, and the conditions of approval of the Texas program can be
found in the February 27, 1980, Federal Register (45 FR 12998).
Subsequent actions concerning the Texas program and program amendments
are codified at 30 CFR 943.15 and 943.16.
II. Proposed Amendment
By letter dated February 8, 1993 (Administrative Record No. TX-
542), Texas submitted to OSM a proposed amendment to its program
pursuant to SMCRA. Texas submitted the proposed amendment in response
to the required amendments codified at 30 CFR 943.16(b), (c), (d)(1),
(2) and (3), (e), (f), (g), (h)(1) and (2), (i)(1) and (2), and (j)(1),
(2), and (3) (57 FR 21600, May 21, 1992). The provisions of the Texas
Coal Mining Regulations (TCMR) at 16 Texas Administrative Code (TAC)
11.221 that Texas proposed to revise were the identification of
interests and compliance information at TCMR 778.116(1) and (m), review
of permit applications at TCMR 786.215(e)(1) and (2), (f), and (g), and
Commission review of outstanding permits at TCMR 788.225(f), (f)(1)(A),
(g) and (g)(3).
OSM published a notice in the March 30, 1993, Federal Register (58
FR 16834) announcing receipt of the amendment and inviting public
comment on the adequacy of the proposed amendment (Administrative
Record No. TX-550). The public comment period closed April 29, 1993.
During its review of the amendment, OSM identified concerns
relating to the provisions of TCMR 778.116(m), identification of
interests and compliance information: Violation information; TCMR
786.215(e)(1), review of permit applications: Review of violations;
TCMR 786.215(f), review of permit applications: Pattern of willful
violations; TCMR 786.215(g), review of permit applications: Final
compliance review; TCMR 788.225(e), Commission review of outstanding
permits: Improvidently issued permits; TCMR 788.225(f), Commission
review of outstanding permits: Review criteria; and TCMR 788.225(g),
Commission review of outstanding permits: Remedial measures. OSM also
noted that the proposed amendment did not contain revisions to the
Texas program adopting procedural requirements no less effective than
the Federal regulation at 30 CFR 843.11(g), which requires that, within
60 days of the issuance of a cessation order, the regulatory authority
must notify all owners and controllers identified as owning or
controlling the permittee.
OSM notified Texas of these concerns by letter dated June 8, 1993
(Administrative Record No. TX-565). Texas responded in a letter dated
July 7, 1993, by submitting additional explanatory information and a
revised amendment (Administrative Record No. TX-562). The regulations
that Texas proposed to further revise were TCMR 778.116(m),
identification of interests and compliance information: Violation
information; TCMR 786.215(e)(1), review of permit applications: Review
of violations; TCMR 786.215(f), review of permit applications: Pattern
of willful violations; TCMR 786.215(g), review of permit applications:
Final compliance review; TCMR 788. 225(e), Commission review of
outstanding permits: Review criteria; TCMR 788.225(f), Commission
review of outstanding permits: Remedial measures; and TCMR 788.225(g),
Commission review of outstanding permits: Right of appeal. In this
revised amendment, Texas also submitted for the first time proposed
revisions to TCMR 843.680(c), cessation orders.
OSM published a notice in the August 12, 1993, Federal Register (58
FR 42901) announcing receipt of the amendment and inviting public
comment on the adequacy of the proposed amendment (Administrative
Record No. TX-567). The public comment period closed August 27, 1993.
III. Director's Findings
After a thorough review, pursuant to SMCRA and the Federal
regulations at 30 CFR 732.15 and 732.17, the Director finds, with
certain exceptions and additional requirements discussed herein, that
the proposed amendment as submitted by Texas on February 8, 1993, and
subsequently revised on July 7, 1993, is no less stringent than SMCRA
and no less effective than the corresponding Federal regulations in
meeting SMCRA's requirements.
1. Revisions to Texas' Regulations That Are Substantively Identical to
the Corresponding Federal Regulations
Texas proposed revisions to the following regulations that are
substantive in nature and contain language that is substantively
identical to the corresponding Federal regulations (listed in
parentheses): TCMR 778.116(1) (30 CFR 778.14(b)), identification of
interests and compliance information; TCMR 786.215(e)(2) (30 CFR
773.15(b)(2)), review of permit applications; and TCMR 788.225(g) (30
CFR 773.21(c)), right of appeal.
Because these proposed Texas regulations are substantively
identical to the corresponding Federal regulations, the Director finds
that they are no less effective than the corresponding Federal
regulations and approves them. Accordingly, the Director removes the
required amendments at 30 CFR 943.16(b) and (e).
2. TCMR 778.116(m), Identification of Interests and Compliance
Information
Proposed TCMR 778.116(m) requires that an application for a permit
to conduct surface coal mining and reclamation operations (a permit
application) include, among other things,
[f]or any violations of a provision of the Act, Federal Act, or
of any law, rule or regulation of the United States, or of any State
law, rule or regulation enacted pursuant to Federal law, rule or
regulation pertaining to air or water environmental protection
incurred in connection with any surface coal mining operation, a
list of all violation notices received by the applicant during the
three year period preceding the application date, and a list of all
unabated cessation orders and unabated air and water quality
violation notices received prior to the date of the application by
any surface coal mining and reclamation operation owned or
controlled by either the applicant or by any person who owns or
controls the applicant.
Proposed TCMR 778.116(m) is similar to the corresponding Federal
regulation at 30 CFR 778.14(c). In fact, the proposed Texas provision
follows the language of the Federal counterpart regulation almost
verbatim, with the exception that Texas has added the term ``Federal
Act.'' However, as discussed below, the requirements of the proposed
TCMR 778.116(m) differ substantively from the Federal requirements, and
the Director has two specific concerns with Texas' proposal.
The Director's first concern relates to Texas' use of the terms
``Act'' and ``Federal Act.'' At TCMR 700.003(1), Texas defines the term
``Act'' to mean the ``Texas Surface Coal Mining Control and Reclamation
Act'' (TSCMRA) and at TCMR 700.003(10) defines the term ``Federal Act''
to mean the ``Surface Mining Control and Reclamation Act of 1977 (Pub.
L. 95-87).'' Therefore, when Texas requires at proposed TCMR 778.116(m)
information ``for any violations of a provision of the Act, [or the]
Federal Act,'' it requires a permit application to include information
regarding violations of TSCMRA and SMCRA.
In contrast, the term ``Act'' as used in 30 CFR 778.14(c) and
section 510(c) of SMCRA, includes not only SMCRA, but also its
implementing Federal regulations, and all Federal and State programs
approved under SMCRA (53 FR 38868, 38882-38883, October 3, 1988; and 48
FR 44344, 44389, September 28, 1983). Therefore, the corresponding
Federal regulation at 30 CFR 778.14(c) requires permit applications to
include information regarding violations received pursuant to SMCRA,
SMCRA's implementing Federal regulations (e.g., 30 CFR part 865), all
SMCRA-approved Federal programs (OSM-administered Indian lands programs
(30 CFR part 750) and Federal programs for States (various sections of
30 CFR part 900; e.g. 30 CFR part 942)), and all SMCRA-approved State
programs.
Although Texas, by adding the term ``Federal Act,'' requires permit
applications to include information regarding violations of SMCRA, it
is not clear that this term, as used in the Texas proposal, includes
SMCRA's implementing Federal regulations, SMCRA-approved Federal
programs, and all SMCRA-approved State programs, not just the Texas
program. In its June 8, 1993 letter to Texas, OSM requested Texas to
clarify whether the term ``Federal Act'' included SMCRA's implementing
Federal regulations, SMCRA-approved Federal programs, and all SMCRA-
approved State programs. In its submittal of July 8, 1993, Texas
responded that inclusion of information on such violations in permit
applications is not necessary because section 21(b) of TSCMRA and TCMR
786.215 (e)(1) and (g) allow the regulatory authority to consider other
available information in making its decision regarding a permit
application.
The Federal regulation at 30 CFR 778.14(c) does not provide any
exception to the requirement that violations of the specified laws
rules and regulations be included in a permit application. In addition,
section 510(c) of SMCRA requires that ``any and all'' such violations
be listed. There is no exception for information that may be available
to the regulatory authority from other sources.
The Director's second concern with proposed TCMR 778.116(m) relates
to the phrase ``of any law, rule or regulation of the United States, or
of any State law, rule or regulation enacted pursuant to Federal law,
rule or regulation pertaining to air or water environmental
protection'' (emphasis added). In its June 8, 1993 letter to Texas, OSM
observed that, in its proposals, Texas sometimes capitalizes the word
``State.'' OSM requested Texas to clarify whether or not the State
intended the word ``State'' to have different meanings, depending upon
whether or not it was capitalized in any particular proposed provision.
In its submittal of July 8, 1993, Texas responded that the word
``State,'' when capitalized, refers to Texas and, when uncapitalized,
refers to all States within the United States of America. Therefore,
the word ``State'' in the phrase ``of any law, rule or regulation of
the United States, or of any State law, rule or regulation enacted
pursuant to Federal law, rule or regulation pertaining to air or water
environmental protection'' limits the applicable violations that must
be included in a permit application to those incurred in Texas.
In its July 8, 1993 submittal, Texas indicated that its proposed
regulation at TCMR 778.116(m) limited the information regarding
violations that must be included in a permit application to violations
incurred within the State of Texas because section 21(c) of TSCMRA is
similarly limited in scope. Section 21(c) of TSCMRA requires a permit
application to include a listing of ``notices of violations of this Act
and any law, rule, or regulation of the United States, or the State of
Texas, or of any department or agency in the United States pertaining
to air or water environmental protection incurred by the applicant in
connection with any surface coal mining operation within the state * *
*'' (emphasis added).
This limitation of section 21(c) of TSCMRA is inconsistent with
section 510(c) of SMCRA and OSM's interpretation of the phrase ``any
department or agency in the United States'' included in that section of
SMCRA. The preamble to the Federal regulations at 30 CFR 778.14 states
that
[t]he phrase ``in the United States'' is construed by courts to
mean physically located within the United States * * *. Therefore,
the preferred way to read section 510(c) is to construe ``department
or agency in the United States'' to mean any governmental department
or agency'' physically located in the United States, which would
include State and local governmental entities
(44 FR 14902, 15023, March 13, 1979). This includes the State and local
governmental entities of all States, not just those within the State in
which the permit application is submitted.
In conclusion, the Director finds that Texas' proposed regulation
at TCMR 778.116(m) is less effective than the corresponding regulation
at 30 CFR 778.14(c) in meeting SMCRA's requirements and less stringent
than section 510(c) of SMCRA because it does not require permit
applications to include information regarding (1) violations received
pursuant to SMCRA's implementing Federal regulations, SMCRA-approved
Federal programs, and SMCRA-approved State programs, other than the
Texas program, and (2) air or water environmental protection violations
received pursuant to State laws, rules or regulations enacted pursuant
to Federal laws, rules, or regulations and incurred by the applicant
outside of the State of Texas. The Director approves proposed TCMR
778.116(m) but requires Texas to revise it or otherwise modify its
program to provide that a permit application must include information
on (1) violations received pursuant to SMCRA's implementing Federal
regulations, SMCRA-approved Federal programs, and all SMCRA-approved
State programs, not just the Texas program and (2) air or water
environmental protection violations received pursuant to State laws,
rules or regulations enacted pursuant to Federal laws, rules, or
regulations and incurred by the applicant in any State, not just Texas.
The Director also finds that section 21(c) TSCMRA is less stringent
than section 510(c) of SMCRA because it limits the information
regarding violations that must be included in a permit application to
those that occur in Texas. Therefore, the Director requires Texas to
revise section 21(c) of TSCMRA to remove the words ``within the state''
from the phrase ``in connection with any surface coal mining operation
within the state during the three-year period'' in the first sentence
of section 21(c).
3. TCMR 786.215(e)(1), (f), and (g), and 786.216(i), Review of Permit
Applications
(a) TCMR 786.215(e)(1)
Proposed TCMR 786.215(e)(1) provides, in part, that,
[i]f the Commission determines from either the schedule
submitted as part of an application * * * or from other available
information concerning Federal and State failure-to-abate cessation
orders, unabated Federal and State imminent harm cessation orders,
delinquent civil penalties issued pursuant to the Act or Federal Act
or Federally-approved coal regulatory program, bond forfeitures
where violations upon which the forfeitures were based have not been
corrected, delinquent abandoned mine reclamation fees, and unabated
violations of Federal and any state laws, rules, and regulations
pertaining to air or water environmental protection incurred in
connection with any surface coal mining and reclamation operation
owned or controlled by either the applicant or by any person who
owns or controls the applicant is currently in violation of the Act
or any other law, rule, or regulation referred to in this paragraph
(emphasis added).
Proposed TCMR 786.215(e)(1) differs from the corresponding Federal
requirements at 30 CFR 773.15(b)(1) in three ways. First, as discussed
in finding No. 2, Texas has stated that the word ``State,'' when
capitalized, refers to the State of Texas and, when uncapitalized,
refers to all States within the United States of America. Thus, the
reference in Texas' proposal to ``Federal and State failure-to-abate
cessation orders [and] unabated Federal and State imminent harm
cessation orders'' is limited to cessation orders incurred in Texas.
Therefore, Texas' proposal is inconsistent with the Federal
requirements at 30 CFR 773.15(b)(1), which require the regulatory
authority to consider information on cessation orders incurred in all
States, not just Texas.
Second, proposed TCMR 786.215(e)(1) requires the Commission to
consider, as a basis for permit denial, information on ``delinquent
civil penalties issued pursuant to the Act or Federal Act or federally-
approved coal regulatory program.'' The corresponding Federal
regulation at 30 CFR 773.15(b)(1) requires the regulatory authority to
consider, as a basis for permit denial, among other things, information
concerning delinquent civil penalties issued pursuant to ``the Act,''
meaning SMCRA. The preamble to 30 CFR 778.14(c) (53 FR 38868, 38882-
38883, October 3, 1988; also 48 FR 44344, 44389, September 28, 1983)
explains that the reference to the ``Act'' in section 510(c) of SMCRA,
on which the Federal regulation is based, includes, in addition to
SMCRA, SMCRA's implementing Federal regulations and all Federal and
State programs approved under SMCRA (53 FR 38868, 38882-38883, October
3, 1988).
As discussed in finding No. 2, Texas defines the term ``Act'' to
mean Texas Surface Coal Mining Control and Reclamation Act and defines
the term ``Federal Act'' to mean the Surface Mining Control and
Reclamation Act of 1977 (SMCRA, Pub. L. 95-87). In its submittal dated
February 8, 1993, Texas stated that it interprets the phrase ``the
Federal Act or federally-approved coal regulatory program'' in TCMR
786.215(e)(1) to include available information concerning delinquent
civil penalties issued pursuant to any OSM Federal programs, or any
SMCRA-approved State programs other than the Texas program, as a basis
for permit denial.
On the basis of this interpretation, proposed TCMR 786.215(e)(1) is
no less effective than 30 CFR 773.15(b)(1) because it requires that the
Commission consider, as a basis for permit denial, information
concerning delinquent civil penalties issued pursuant to the Texas
program, SMCRA, SMCRA's implementing Federal regulations, SMCRA-
approved Federal programs, and all SMCRA-approved State programs, not
just the Texas program.
Third, proposed TCMR 786.215(e)(1) also provides, in part, that
``[i]n the absence of a failure-to-abate cessation order, the
Commission may presume that a notice of violation issued pursuant to
Section .681 or under a Federal or State program has been or is being
corrected to the satisfaction of the agency with jurisdiction over the
violation * * *.'' This proposed language includes the same
requirements as the Federal provisions at 30 CFR 773.15(b)(1). However,
on May 21, 1992 (57 FR 21600, 21602), the Director deferred decision on
this provision of TCMR 786.215(e)(1) because the Secretary of the
Interior, in National Wildlife Federation v. Lujan, Civ. Nos. 88-3117,
et seq. (Consolidated, D.D.C. filed October 27, 1988), had expressed an
intention to reconsider the issue of whether, in the absence of a
failure-to-abate cessation order, the regulatory authority may presume
that a notice of violation has been or is being corrected, as set forth
in the Federal regulation (Memorandum of Points and Authorities In
Support of the Federal Defendants' Cross-Motion For Summary Judgment
and In Opposition to Plaintiffs' Motions For Summary Judgment, pp. 89-
90). The final resolution of this reconsideration is pending.
In conclusion, the Director finds that proposed TCMR 786.215(e)(1)
is less stringent than section 510(c) of SMCRA and less effective in
meeting SMCRA's requirements than the corresponding Federal regulation
at 30 CFR 773.15(b)(1) to the extent that it does not require the
Commission to consider information on cessation orders incurred in
States other than Texas. The Director requires Texas to revise TCMR
786.215(e)(1) to require the Commission to additionally consider, as a
basis for permit denial, information on cessation orders issued by
States other than Texas. With the exception of the part of proposed
TCMR 786.215(e)(1) that addresses the presumption that, in the absence
of a failure-to-abate cessation order, a notice of violation has been
or is being corrected, the Director approves proposed TCMR
786.215(e)(1). On the part of TCMR 786.215(e)(1) that addresses this
presumption, the Director continues to defer decision.
(b) TCMR 786.215(f) and 786.216(i)
Proposed TCMR 786.215(f) provides, in part, that,
[b]efore any final determination by the Commission that the
applicant, anyone who owns or controls the applicant, or the
operator specified in the application, controls or has controlled
mining operations with a demonstrated pattern of willful violation
of the Act or Federal or State laws as used in 30 CFR 773.15(b) of
such nature, duration, and with such resulting irreparable damage to
the environment that indicates an intent not to comply with the
provisions of the Act or Federal or State laws as used in 30 CFR
773.15(b), no permit shall be issued and a hearing shall be held.
The proposed regulation further provides that the applicant or
operator shall be afforded the opportunity for an adjudicatory hearing
in accordance with TCMR 787.222.
Section 510(c) of SMCRA and the Federal regulation at 30 CFR
773.15(b)(3) prohibit issuance of a permit when the regulatory
authority makes a finding that the applicant, anyone who owns or
controls the applicant, or the operator specified in the application,
controls or has controlled surface coal mining and reclamation
operations with a demonstrated pattern of willful violations of the Act
of such nature and duration, and with resulting irreparable damage to
the environment, as to indicate an intent not to comply with the Act.
The term ``Act,'' as used in section 510(c) of SMCRA and 30 CFR
773.15(b)(3), includes SMCRA, its implementing Federal regulations, and
all Federal and State programs approved under SMCRA (48 FR 44344,
44389, September 28, 1983). This Federal regulation also requires that
the applicant or operator be given an opportunity for an adjudicatory
hearing on the determination, as provided for at 30 CFR 775.11, before
such a finding becomes final.
The Director has three concerns with proposed TCMR 786.215(f).
First, as discussed in finding No. 2, Texas stated in its submittal of
July 7, 1993, that the word ``State,'' when capitalized, means the
State of Texas and, when uncapitalized, means all States within the
United States of America. Because proposed TCMR 786.215(f) uses the
term ``State laws'' in the phrase ``Federal or State laws as used in 30
CFR 773.15(b),'' the Commission would be required to consider
violations of the applicable laws, rules, and regulations of Texas, but
not of other States. This is inconsistent with the corresponding
Federal regulation at 30 CFR 773.15(b)(3) that requires consideration
of the specified violations incurred in all States.
Second, the proposed regulation does not explicitly require denial
of a permit once the Commission makes a determination that a pattern of
willful violations exists. Instead, the proposed rule only requires
that a permit not be issued and a hearing held ``before any final
determination by the Commission.'' Accordingly, the State proposal is
less effective than the Federal regulation at 30 CFR 773.15(b)(3),
which does explicitly require denial of a permit once the regulatory
authority makes a finding that a pattern of willful violation exists.
Third, another Texas regulation directly related to proposed TCMR
786.215(f) is inconsistent with proposed TCMR 786.215(f) and the
Federal requirements at 30 CFR 773.15(b)(3). TCMR 786.216(i), like
proposed TCMR 786.215(f), addresses permit denial based upon the
existence of a pattern of willful violations. However, the scope of
TCMR 786.215(i) is more limited than the scope of proposed TCMR
786.215(f).
TCMR 786.216(i) prohibits Commission approval of a permit only if
the applicant or the operator, if other than the applicant, controls or
has controlled operations with a pattern of willful violations. By
comparison, proposed TCMR 786.215(f) and the Federal regulations at 30
CFR 773.15(b)(3) encompass, in addition to the applicant and the
operator, anyone who owns or controls the applicant. In addition, TCMR
786.216(i) only addresses violations of TSCMRA. It does not encompass
violations of SMCRA, SMCRA's implementing Federal regulations, SMCRA-
approved Federal programs, and SMCRA-approved State programs.
Therefore, existing TCMR 786.216(i) is inconsistent with proposed TCMR
786.215(f) and is less effective than the Federal regulations at 30 CFR
773.15(b)(3).
In conclusion, the Director finds that proposed TCMR 786.215(f) is
less stringent than section 510(c) of SMCRA and less effective than the
corresponding Federal regulation at 30 CFR 773.15(b)(3) in meeting
SMCRA's requirements because the proposed provision (1) does not
specifically require denial of a permit when the Commission determines
that a pattern of willful violations exists and (2) does not require
the Commission to consider violations of the applicable laws, rules,
and regulations of States other than Texas. The Director does not
approve proposed TCMR 786.215(f) and requires Texas to revise it to
prohibit issuance of a permit whenever the Commission makes a
determination that the applicant, anyone who owns or controls the
applicant, or the operator specified in the application controls or has
controlled surface coal mining and reclamation operations with a
demonstrated pattern of willful violations of TSCMRA, SMCRA, SMCRA's
implementing Federal regulations, SMCRA-approved Federal programs, and
all SMCRA-approved State programs, not just the Texas program, of such
nature, duration, and with such resulting irreparable damage to the
environment, as to indicate an intent not to comply with these laws,
rules, and regulations.
In addition, because TCMR 786.216(i) creates internal
inconsistencies in the Texas program and it is less effective than the
Federal regulations at 30 CFR 773.15(b)(3) in meeting SMCRA's
requirements, the Director requires Texas to delete TCMR 786.216(i) or
revise it to be no less effective than the Federal requirements in
meeting SMCRA's requirements.
(c) TCMR 786.215(g)
Proposed TCMR 786.215(g) requires the Commission, prior to issuing
a permit, to review and consider, under the criteria of TCMR
786.215(e)(1), any new compliance information submitted pursuant to
TCMR 778.116 (i) and (n). If the applicant fails or refuses to respond
as required, or if the new information shows that the applicant, anyone
who owns or controls the applicant, or the operator is in violation,
the Commission must deny the permit.
Under the Federal regulation at 30 CFR 773.15(b)(1), the regulatory
authority cannot issue a permit if any surface coal mining and
reclamation operation owned or controlled by either the applicant or by
any person who owns or controls the applicant is currently in violation
of SMCRA or certain other laws and regulations. The Federal regulation
at 30 CFR 773.15(e), which corresponds to proposed TCMR 786.215(g),
requires that after an application is approved, but before a permit is
issued, the regulatory authority must reconsider its decision to
approve the application, based upon the compliance review required by
30 CFR 773.15(b)(1), in light of any new information submitted pursuant
to 30 CFR 778.13(i) and 778.14(d).
Because proposed TCMR 786.215(g) requires the Commission, after an
application is approved but before the permit is issued, to conduct a
final compliance review in accordance with TCMR 786.215(e)(1), the
Director finds that proposed TCMR 786.215(g) is no less effective than
the corresponding Federal regulation at 30 CFR 773.15(e). The Director
approves TCMR 786.215(g) and removes the required amendment at 30 CFR
943.16(g).
4. TCMR 788.225 (e) and (f), Commission Review of Outstanding Permits
(a) TCMR 788.225(e)
Proposed TCMR 788.225(e) requires the Commission to review a permit
under the authority of section 22(c) of TSCMRA when it has reason to
believe that the permit was improvidently issued. The Commission must
find, after notice and opportunity for a hearing, that the permit was
improvidently issued if the conditions set forth at TCMR 788.225(e) (1)
through (3) are met.
The corresponding Federal regulation at 30 CFR 773.20(a) provides,
in part, that a regulatory authority that has reason to believe that it
improvidently issued a surface coal mining and reclamation permit must
review the circumstances under which the permit was issued, using the
criteria at 30 CFR 773.20(b). The Federal regulations at 30 CFR
773.20(b) require the regulatory authority to make a finding that a
permit was improvidently issued when the conditions specified at 30 CFR
773.20(b) (1) through (3) are met.
Proposed TCMR 788.225(e) includes the phrase ``under the authority
of Section 22(c) of the Act.'' In its June 8, 1993, letter to Texas,
OSM requested that Texas clarify the meaning of this phrase. In its
July 8, 1993, submittal, Texas responded that the phrase merely cited
the section of TSCMRA that provides the basis for Commission review of
a final order which issued a permit. Section 22(c) of TSCMRA requires
the Commission to review outstanding permits and allows it to require
reasonable revisions or modifications of the permit provisions. On the
basis of this explanation, this part of proposed TCMR 788.225(e) is no
less effective than the Federal regulations at 30 CFR 773.20(a) and (b)
because it requires a review of an outstanding permit any time the
Commission has reason to believe that the permit was improvidently
issued.
Proposed TCMR 788.225(e) does not specifically identify the
violations review criteria that the Commission will use to determine
whether a permit was improvidently issued. In its June 8, 1993, letter
to Texas, OSM requested that Texas identify the permit review criteria
that would be used. As OSM noted, the Federal regulations contain only
the procedures the regulatory authority must employ to determine
whether a surface coal mining and reclamation permit was improvidently
issued. The preamble to the Federal regulation at 30 CFR 773.20
specifies certain review and decision criteria (including effective
dates relative to various types of violations, penalties, and fees)
that apply in all Federal and State cases (54 FR 18438, 18440-18441,
April 28, 1989). Texas responded in its July 8, 1993, submittal that it
intends to apply the same permit review criteria that are applied by
the Federal rules. Thus, Texas has adopted the minimum violation review
criteria specified by the Federal regulations. Texas has not specified
the actual calendar dates on which each of the criteria became or will
become effective. Therefore, at the time a review is conducted, Texas
must specify criteria and effective dates corresponding with those of
the Federal regulations. On this basis, this part of proposed TCMR
788.225(e) is no less effective than the Federal regulations at 30 CFR
773.20(a) and (b) in meeting SMCRA's requirements.
Proposed TCMR 788.225(e)(1)(B) provides that the Commission shall
review a permit if ``[t]he permit was issued on the information that a
notice of violation was in the process of being corrected to the
satisfaction of the agency with jurisdiction over the violation * *
*.'' This proposed language is substantively identical to the
corresponding Federal regulation at 30 CFR 773.20(b)(1)(ii). However,
this subsection relates to the same presumption issue discussed in
finding No. 3(a). On May 21, 1992 (57 FR 21600, 21602), the Director
deferred decision on this provision of TCMR 788.225(e) because the
Secretary had indicated an intention to reconsider the corresponding
Federal regulation at 30 CFR 773.20(b)(1)(ii) in addition to 30 CFR
773.15(b)(1)(i) (Memorandum of Points and Authorities, p. 124). The
final resolution of this reconsideration is pending.
For the aforementioned reasons, and with the exception of
subsection TCMR 788.225(e)(1)(B) which allows the Commission to presume
that a notice of violation has been or is being corrected in the
absence of a failure-to-abate cessation order, the Director finds that
proposed TCMR 788.225(e) is no less effective than 30 CFR 773.20(a) and
(b), approves it, and removes the required amendments at 30 CFR
943.16(h)(1), (i)(1) and (i)(2). The Director continues to defer
decision on proposed TCMR 788.225(e)(1)(B).
(b) TCMR 788.225(f)
Proposed TCMR 788.225(f) requires that if the Commission, under
TCMR 788.225(e), finds that a permit was improvidently issued, it shall
use one or more of the following three remedial measures specified at
TCMR 788.225(f)(1) through (3):
(1) Implement, with the cooperation of the permittee or other
person responsible, and of the responsible agency, a plan for
abatement of the violation or a schedule for payment of the penalty
or fee;
(2) Require revision of the permit to impose a condition that in
a reasonable period of time the permittee abate the violation or pay
the penalty or fee;
(3) Issue a show cause order to suspend or revoke the permit
based upon its improvident issuance in accordance with [the
Administrative Procedures and Texas Register Act (APTRA)]. A
decision on suspension shall be made within ninety days and a
decision on rescission shall be made within a further ninety days.
The corresponding Federal regulation at 30 CFR 773.20(c) requires a
regulatory authority, when it finds that a permit was improvidently
issued, to use one or more of the four remedial measures specified at
30 CFR 773.20(c)(1) through (4).
The remedial measure proposed by Texas at TCMR 778.225(f)(1) and
(2) are almost identical to the counterpart Federal provisions at 30
CFR 773.20(c)(1) and (2). They differ only in that under TCMR
778.225(f)(2) the Commission can impose a condition on a permit that,
in a reasonable amount of time, the ``permittee'' abate the violation
or pay the penalty or fee, whereas the Federal regulation at 30 CFR
773.20(c)(2) allows the same permit condition for the ``permittee or
other persons responsible'' to abate the violations or pay the penalty
or fee. Texas' proposal to make the permittee solely responsible for
the violation abatement or payment is no less effective than the
Federal regulations at 30 CFR 773.20(c)(2).
The Director has two concerns with the remainder of proposed TCMR
778.225(f). First, proposed TCMR 788.225(f) does not include provisions
corresponding to the Federal remedial measures at 30 CFR 773.20(c)(3).
This remedial measure allows the regulatory authority to suspend the
permit until the violation is abated or the penalty or fee is paid.
This possible remedial measure is separate and distinct from the one at
30 CFR 773.20(c)(4) that allows the regulatory authority to rescind the
permit in accordance with 30 CFR 773.21. The Federal regulation at 30
CFR 773.21 provides for permit suspension in connection with the
rescission process provided for by that regulation.
The preamble to the Federally regulations makes clear that the
suspension referred to in 30 CFR 773.21 is separate and distinct from
the suspension revered to in 30 CFR 773.20(c)(3). The suspension
referred to at 30 CFR 773.21 is merely a preliminary step in the permit
rescission process; OSM stated that it was providing for the permit
suspension at 30 CFR 773.20(c)(3) as a separate possible remedial
action ``to give a regulatory authority discretion to tailor a
suspension to the unique circumstances involving a particular permit *
* *'' (54 FR 18438, 18450; April 28, 1989). OSM also stated that
Section 773.20(c)(3) does not set out specific suspension
procedures, but allows the regulatory authority to use any
appropriate procedures that are consistent with the regulatory
program, including a reasonable period of time between notifying a
permittee of a suspension and when the suspension becomes effective
(54 FR 18438, 18450, April 28, 1989).
Proposed TCMR 788.225(f)(3) appears to be a counterpart provision
to the Federal regulations at 30 CFR 773.20(c)(4) and 773.21. That is,
Texas' proposed possible remedially measure involving a show cause
order to suspend or revoke a permit seems to corespond to the Federal
provisions at 30 CFR 773.20(c)(4) and 773.21 for permit rescission.
Texas has not proposed any counterpart provision to the Federal
regulation at 30 CFR 773.20(c)(3) for permit suspension as a possible
remedial measure. The preamble to 30 CFR 773.20(c) explains that four
alternative remedial measures are provided ``because of the diversity
of circumstances under which a regulatory authority might find that a
permit was improvidently issued, and the resulting need to apply a
remedy that not only is administratively appropriate, but also is fair
and equitable to the permitted'' (54 FR 18438, 18447, April 28, 1989).
Since the availability of various possible remedial measures is a
matter bearing upon procedural rights and remedies, the State proposal
must be evaluated from the point of view of is similarity to the
Federal rules in affording rights and remedies to persons (46 FR 53376,
53377, October 28, 1981). To the extent Texas' proposal does not
provide any counterpart provision to 30 CFR 773.20(c)(3), it fails to
afford rights and remedies to persons similar to those afforded under
the Federal regulations. Accordingly, the Director finds that proposed
TCMR 788.225(f) is less effective than the Federal regulations in
meeting SMCRA's requirements insofar as the State proposal fails to
provide a counterpart provision to 30 CFR 773.20(c)(3).
Second, proposed TCMR 788.225(f)(3) differs considerably from and
is less effective in meeting SMCRA's requirements than the Federal
counterpart provisions at 30 CFR 773.20(c)(4) and 773.21. While the
Federal regulation at 30 CFR 773.21 sets forth detailed procedures
governing rescission of a permit pursuant to 30 CFR 773.20(c)(4),
proposed TCMR 788.225(f)(3) merely states that a possible remedial
measure is to
[i]ssue a show cause order to suspend or revoke the permit based
upon its improvident issuance in accordance with APTRA. A decision
on suspension shall be made within ninety days and a decision on
rescission shall be made within a further ninety days.
In its letter to the State dated June 8, 1993, OSM notified Texas
that its provision appeared to provide for rescission only through
formal adjudicative proceedings, as compared to the automatic
suspension and rescission process provided for in the Federal
regulations at 30 CFR 773.21(a). Texas explained, in its letter of July
7, 1993, that because section 13(a) of APTRA, which is part of the
approved Texas program, requires that all parties in a contested case
have the opportunity for an adjudicative hearing before legal rights,
duties or privileges are determined, the suspension or revocation of
permits cannot be automatic. Texas further explained that proposed TCMR
788.225(f)(3) provides that decisions on suspension and rescission of
permits must be made within the same time periods as required by the
Federal provisions.
Although the concept of providing for a formal adjudicative
proceeding in connection with permit suspension and revocation
proceedings does not, by itself, render proposed TCMR 788.225(f)(3)
less effective than the Federal regulations at 30 CFR 773.21(a) in
meeting SMCRA's requirements, there are ambiguities and deficiencies
with the State proposal that do render it less effective than the
Federal counterpart regulations.
First, although Texas states that its proposal provides for the
same time periods as the corresponding Federal provisions, it is not
clear that the Texas proposal does so. The Texas proposal only states
when a ``decision'' regarding permit suspension and revocation will be
made. It does not discuss when such a decision will become effective
and the permit will actually be suspended or rescinded. Although the
proposal would require Texas to make a ``decision'' on permit
suspension and rescission within the specified time periods, the
effective date of the suspension and rescission could occur beyond the
specified time periods. By comparison, the Federal regulation at 30 CFR
773.21(a) provides for the suspension of a permit to become effective
on a specified date not to exceed 90 days after notice is served on the
permittee and for the rescission of the permit to become effective
within a specified period not to exceed 90 days after the suspension is
effective.
It also is not clear that the specified time periods in the State
proposal are the same as those in the Federal regulations. The Federal
regulation at 30 CFR 773.21(a) requires that ``[a]fter a specified
period of time not to exceed 90 days [after service of the notice of
permit suspension and rescission] the permit automatically will become
suspended, and not to exceed 90 days thereafter rescinded'' (emphasis
added) unless, within those time frames, the permittee submits proof
and the regulatory authority makes findings on certain matters
specified at 30 CFR 773.21(a)(1) through (4). By comparison, the State
proposal merely states that a decision on suspension will be made
``within ninety days'' and a decision on rescission will be made
``within a further ninety days.''
Under the Federal regulations, the regulatory authority has the
ability to specify any particular period of time in its notice of
permit suspension and rescission, as long as the specified time period
does not exceed 90 days. That is, the regulatory authority has the
flexibility and discretion to suspend and rescind the permit very
rapidly if deemed appropriate. Because Texas has indicated that it must
follow its adjudicative procedures for permit suspension and rescission
under this State rule but has not indicated the time periods associated
with those procedures, it is not clear that Texas retains similar
flexibility and discretion under its proposal.
In addition, the Federal regulations explicitly detail at 30 CFR
773.21(a)(1) through (4) the matters upon which the permittee must
submit proof, and the findings the regulatory authority must make, in
order to prevent permit suspension and rescission. If the permittee
fails to submit proof or the regulatory authority fails to make
findings on such specified matters, the permit must be suspended and
rescinded. Moreover, the Federal regulations explicitly require that
the permittee be given advance notice of those necessary matters of
proof and required findings. The Texas proposal contains no such
requirements.
Similarly, proposed TCMR 788.225(f) does not address the cessation
of operations once a permit is suspended or rescinded. By comparison,
the Federal regulation at 30 CFR 773.21(b) explicitly requires that
after a permit is suspended or rescinded, all surface coal mining and
reclamation operations being conducted under that permit must cease,
except for violation abatement and for reclamation and other
environmental protection measures as required by the regulatory
authority. Permit suspension or rescission must not preclude the
operator from completing such required operations. Again, Texas'
proposal contains no counterpart provision.
In conclusion, the Director finds that proposed TCMR 788.225(f) is
less effective than the corresponding Federal regulations at 30 CFR
773.20(c) and 773.21 (a) and (b) because it does not (1) include, as a
counterpart to 30 CFR 773.20(c)(3), another possible remedial measure
for improvidently issued permits that allows suspension of the
improvidently issued permit until the violation is abated or the
penalty or fee is paid, (2) specify the conditions no less effective
than those at 30 CFR 773.21(a) (1) through (4) that must be met in
order to prevent suspension or rescission an improvidently issued
permit, (3) require that after a permit is suspended or rescinded, the
only surface coal mining and reclamation operations that may continue
to be conducted are those required for violation abatement and those
required for completion of reclamation and other environmental
protection measures as specified by the Commission, and (4) provide for
the same time periods as those specified in the Federal regulations at
30 CFR 773.21, require that a decision to suspend or rescind an
improvidently issued permit must become effective within these
specified time periods, or allow the Commission sufficient flexibility
and discretion to suspend and rescind a permit rapidly when it is
appropriate. Accordingly, the Director does not approve proposed
subparagraph TCMR 788.225(f)(3).
With the exception of subparagraph (f)(3), the Director approves
proposed TCMR 788.225(f). The Director requires Texas to further revise
TCMR 788.225(f) to (1) include, as a counterpart to 30 CFR
773.20(c)(3), another possible remedial measure for improvidently
issued permits that allows suspension of the improvidently issued
permit until the violation is abated or the penalty or fee is paid, (2)
specify the conditions no less effective than those at 30 CFR 773.21(a)
(1) through (4) that must be met in order to prevent suspension or
rescission an improvidently issued permit, (3) require that, after a
permit is suspended or rescinded, the only surface coal mining and
reclamation operations that may continue to be conducted under that
permit are those required by the Commission for violation abatement and
for completion of reclamation and other environmental protection
measures, and (4) provide for the same time periods as those specified
in the Federal regulations at 30 CFR 773.21, require that a decision to
suspend or rescind an improvidently issued permit must become effective
within these specified time periods, and allow the Commission
sufficient flexibility and discretion to suspend and rescind a permit
rapidly when it is appropriate. Because the Director is revising 30 CFR
943.16(j) to require that TCMR 788.225(f) be revised as discussed
above, the Director removes the required amendment to 30 CFR
943.16(h)(2).
5. TCMR 843.680(c), Cessation Orders
Proposed TCMR 843.680(c) sets forth the minimum information that
must be specified in a cessation order issued under the provisions of
TCMR 843.680 (a) or (b), including (1) the nature of the violation, (2)
the remedial action or affirmative obligation required, if any,
including interim steps, if appropriate, (3) the time established for
abatement, if appropriate, including the time for meeting any interim
steps, and (4) a reasonable description of the portion of the coal
exploration or surface coal mining and reclamation operation to which
it applies.
Proposed TCMR 843.680(c) also requires that (1) a cessation order
shall remain in effect until the condition, practice, or violation has
been abated or until vacated, modified or terminated in writing by an
authorized representative of the Commission, and (2) the Commission,
within 60 days after issuing a cessation order, shall notify in writing
any person who has been identified as owning or controlling the
permittee that the cessation order was issued and that the person has
been identified as an owner or controller.
The provisions of proposed TCMR 843.680(c) are similar to the
corresponding Federal provisions at 30 CFR 843.11 (c) and (g), with
three exceptions. Proposed TCMR 843.680(c) requires a cessation order
to set forth, among other things, ``the nature of the violation.'' The
corresponding Federal regulations at 30 CFR 843.11(c) require a
cessation order to set forth ``the nature of the conditions, practice
or violation.'' This difference in wording is not substantive. Section
521(a)(5) of SMCRA requires a cessation order to set forth ``the nature
of the violation'' and OSM's original program at 30 CFR 843.11(c) had
the same requirement (44 FR 14902, 15458, March 13, 1979).
Subsequently, the words ``condition, practice or'' were added to the
phrase ``the nature of the violation'' (47 FR 35620, 35630, August 16,
1982). The preamble to that rulemaking states that, except for
paragraph (a)(2), section 843.11 was promulgated as proposed, and
further indicates that the promulgated changes were made to more
closely reflect the provisions for cessation orders contained in
section 521 of SMCRA (47 FR 35620, 35630, August 16, 1982). OSM stated
in the proposed rule that it was proposing various language changes
throughout 30 CFR 843.11(c) for clarity and that no changes in effect
were intended (46 FR 58464, 58467, December 1, 1981).
The requirements of SMCRA at section 521(a)(5) to set forth in a
cessation order ``the nature of the violation'' and of the Federal
regulations at 30 CFR 843.11(c) to set forth ``the nature of the
condition, practice or violation'' are both, in effect, requirements to
explain to the permittee, in writing, why cessation of operations is
being ordered. The omission of the words ``condition, practice or''
from the requirements at TCMR 843.680(c) does not relieve the
Commission or its representatives from including in the cessation order
the reason for the order, regardless of whether the reason is a
condition, practice, violation, or a combination of thereof. Therefore,
to the extent that it requires a cessation order to include the reasons
for the order, whether the reason is a condition, practice, violation,
proposed TCMR 843.680(c) is no less effective than the requirements of
the corresponding Federal regulations at 30 CFR 843.11(c) in meeting
SMCRA's requirements.
In addition, proposed TCMR 843.680(c) does not require, as do 30
CFR 843.11(c), section 521(a)(5) of SMCRA, and 30 CFR 843.15, that a
cessation order expire within 30 days after it is served unless an
informal public hearing has been held within that time. Texas'
regulations at TCMR 843.684(a) provide that a cessation order must be
reviewed at a public hearing within 30 days after it is served, but
there is no provision for terminating the order if such hearing is not
held within 30 days. However, consistent with section 521(a)(5) of
SMCRA, section 32(e) of TSCMRA provides that a cessation order shall
expire within 30 days of notice unless a public hearing is held.
Therefore, proposed TCMR 843.680(c), in conjunction with section 32(e)
of TSCMRA, is no less effective than the Federal regulations at 30 CFR
843.11(c) and is no less stringent than section 521(a)(5) of SMCRA with
regard to the expiration of cessation orders.
The additional requirements that Texas proposed to add at TCMR
843.680(c), concerning notification of persons identified as owning or
controlling the permittee, differ from the Federal requirements to 30
CFR 843.11(g) only to the extent that they do not reference the
specific Texas regulations that require identification of all persons
that own or control the permittee. The proposed regulations, instead,
require notification of ``any person who has been identified as owning
or controlling a permittee.'' The requirements for identification of
such persons are found in the Texas program at TCMR 786.221(d) and
778.116 (c) and (d). These regulations correspond, respectively, to the
Federal regulations at 30 CFR 773.17(i) and 778.13 (c) and (d).
Although proposed TCMR 843.680(c) does not specifically reference
Texas' regulations at TCMR 786.221(d) and 778.116 (c) and (d), which
provide for the identification of all persons that own or control the
permittee, it does require notification of ``any person who has been
identified as owning or controlling a permittee.'' Because the only
regulations in the Texas program that address the identification of
persons who own or control the permittee, are TCMR 786.221(d) and
778.116 (c) and (d), there should be no confusion as to who must be
notified. Therefore, to the extent that Texas' use of the phrase ``any
person who has been identified as owning or controlling the permittee''
at proposed TCMR 843.680(c) means the persons identified pursuant to
the requirements at TCMR 786.221(d) and 778.116 (c) and (d), Texas'
proposed rule is consistent with the Federal regulations at 30 CFR
843.11(g).
For the aforementioned reasons, the Director finds that proposed
TCMR 843.680(c) is no less effective than the corresponding Federal
regulations at 30 CFR 843.11 (c) and (g) in meeting SMCRA's
requirements and approves it.
IV. Summary and Disposition of Comments
1. Public Comments
OSM solicited public comments and provided opportunity for a public
hearing on the proposed amendment. No comments were received from the
public. Because no one requested an opportunity to testify at a public
hearing, no hearing was held.
2. Agency Comments
Pursuant to section 503(b)(1) of SMCRA and 30 CFR 732.17(h)(11)(i),
OSM solicited comments from the Administrator of the Environmental
Protection Agency (EPA) and various other Federal agencies with an
actual or potential interest in the Texas program.
The Soil Conservation Service, Forest Service, Bureau of Mines, and
National Park Service responded that they had no comments concerning
the proposed amendment (Administrative Record Nos. TX-544, TX-545, TX-
546 and TX-571, and TX-549).
The U.S. Army Corps of Engineers responded that it found the
amendment satisfactory to that agency (Administrative Record No. TX-
548).
The Bureau of Land Management responded that it could suggest no
additional improvements to the ownership and control rules
(Administrative Record No. TX-547).
3. State Historic Preservation Officer (SHPO) and Advisory Council on
Historic Preservation (ACHP) Comments
Pursuant to 30 CFR 732.17(h)(4), OSM is required to solicit
comments from the SHPO and ACHP for all amendments that may have an
effect on historic properties. The Director solicited comments from
these offices (Administrative Record No. TX-543). Neither the SHPO nor
ACHP responded.
4. EPA Concurrence
Under 30 CFR 732.17(h)(11)(ii), OSM is required to obtain the
written concurrence of the Administrator of the EPA with respect to any
provisions of a State program amendment that relate to air or water
quality standards promulgated under the authority of the Clean Water
Act (33 U.S.C. 1251 et seq.) or the Clean Air Act (42 U.S.C. 7401 et
seq.)
None of the regulation changes that Texas proposed pertain to air
or water quality standards. Nevertheless, OSM requested EPA's
concurrence. On October 25, 1993, EPA give its concurrence
(Administrative Record No. TX-573).
V. Director's Decision
Based on the above findings, the Director approves, with certain
exceptions and additional requirements, the proposed amendment as
submitted by Texas on February 8, 1993, and as revised by it on July 7,
1993.
As discussed in finding Nos. 1, 3(c), 4(a), and (5), the Director
approves (1) TCMR 778.116(l), identification of interests and
compliance information; (2) TCMR 786.215(e)(2), review of permit
applications; (3) TCMR 786.215(g), review of permit applications: Final
compliance review; (4) TCMR 788.225(e), review criteria, except for
subparagraph TCMR 788.225(e)(1)(B) that allows the Commission to
presume that a notice of violation has or is being corrected; (5) TCMR
788.225(g), right of appeal, and (6) TCMR 843.680(c), cessation orders.
As discussed in finding Nos. 2, 3(a), and 4(b), the Director
approves but requires Texas to submit further regulatory program
amendments regarding (1) TCMR 778.116(m), violation information; (2)
TCMR 786.215(e)(1), review of violations; and (3) TCMR 788.225(f),
(f)(1), and (f)(2), remedial measures.
As discussed in finding Nos. 3(b), and 4(b), the Director does not
approve and requires Texas to submit further regulatory program
amendments regarding (1) TCMR 786.215(f), permit denial for pattern of
violations and (2) TCMR 788.225(f)(3), remedial measures.
As discussed in finding Nos. 2 and 3(b), the Director requires
Texas to (1) revise section 21(c) of TSCMRA to remove the words
``within the state'' from the phrase ``in connection with any surface
coal mining operation within the state during the three-year period''
in the first sentence of section 21(c) and (2) either delete TCMR
786.216(i) or revise it to be no less effective than the Federal
requirements at 30 CFR 773.15(b)(3).
As discussed in finding Nos. 3(a) and 4(a), the Director defers
decision on proposed TCMR 786.215(e)(1) and 788.225(e)(1)(B) to the
extent that these subsections allow the Commission to presume that a
notice of violation has been or is being corrected in the absence of a
failure-to-abate cessation order. In response to litigation, the
Secretary has indicated an intention to reconsider this presumption
issue in the corresponding Federal regulations.
In accordance with 30 CFR 732.17(f)(1), The Director is also taking
this opportunity to clarify in the required amendment section at 30 CFR
943.16 that, within 60 days of the publishing of this notice, Texas
must either submit a proposed written amendment, or a description of an
amendment to be proposed that meets the requirements of SMCRA and 30
CFR Chapter VII and a timetable for enactment that is consistent with
Texas' established administrative or legislative procedures.
To implement this decision, the Director is amending the Federal
regulations at 30 CFR part 943 that codify all decisions concerning the
Texas program. This final rule is being made effective immediately to
expedite the State program amendment process and to encourage States to
bring their programs into conformity with the Federal standards without
undue delay. Consistency of State and Federal standards is required by
SMCRA.
Effect of Director's Decision
Section 503 of SMCRA provides that a State may not exercise
jurisdiction under SMCRA unless the State program is approved by the
Secretary. Similarly, 30 CFR 732.17(a) requires that any alteration of
an approved State program be submitted to OSM for review as a program
amendment. Thus, any changes to the State program are not enforceable
until approved by OSM. The Federal regulations at 30 CFR 732.17(g)
prohibit any unilateral changes to approved State programs. In the
oversight of the Texas program, the Director will recognize only the
statutes, regulations and other materials approved by OSM, together
with any consistent implementing policies, directives and other
materials, and will require the enforcement by Texas of only such
provisions.
VI. Procedural Determinations
1. Executive Order 12866
This final rule is exempted from review by the Office of Management
and Budget under Executive Order 12866 (Regulatory Planning and
Review).
2. Executive Order 12778
The Department of the Interior has conducted the reviews required
by section 2 of Executive Order 12778 (Civil Justice Reform) and has
determined that this rule meets the applicable standards of subsections
(a) and (b) of that section. However, these standards are not
applicable to the actual language of State regulatory programs and
program amendments since each such program is drafted and promulgated
by a specific State, not by OSM. Under sections 503 and 505 of SMCRA
(30 U.S.C. 1253 and 1255) and 30 CFR 730.11, 732.15 and 732.17(h)(10),
decisions on proposed State regulatory programs and program amendments
submitted by the States must be based solely on a determination of
whether the submittal is consistent with SMCRA and its implementing
Federal regulations and whether the other requirements of 30 CFR Parts
730, 731, and 732 have been met.
3. National Environmental Policy Act
No environmental impact statement is required for this rule since
section 702(d) of SMCRA (30 U.S.C. 1292(d)) provides that agency
decisions on proposed State regulatory program provisions do not
constitute major Federal actions within the meaning of section
102(2)(C) of the National Environmental Policy Act, 42 U.S.C.
4332(2)(C).
4. Paperwork Reduction Act
This rule does not contain information collection requirements that
require approval by OMB under the Paperwork Reduction Act, 44 U.S.C.
3507 et seq.
5. Regulatory Flexibility Act
The Department of the Interior has determined that this rule will
not have a significant economic effect on a substantial number of small
entities under the Regulatory Flexibility Act (5 U.S.C. 601 et seq.)
The State submittal that is the subject of this rule is based upon
counterpart Federal regulations for which an economic analysis was
prepared and certification made that such regulations would not have a
significant economic effect upon a substantial number of small
entities. Hence, this rule will ensure that existing requirements
previously promulgated by OSM will be implemented by the State. In
making the determination as to whether this rule would have a
significant economic impact, the Department relied upon the data and
assumptions for the counterpart Federal regulations.
List of Subjects in 30 CFR Part 943
Intergovernmental relations, Surface mining, Underground mining.
Dated: March 14, 1994.
Raymond L. Lowrie,
Assistant Director, Western Support Center.
For the reasons set out in the preamble, Title 30, Chapter VII,
Subchapter T, of the Code of Federal Regulations is amended as set
forth below:
PART 943--TEXAS
1. The authority citation for Part 943 continues to read as
follows:
Authority: 30 U.S.C. 1201 et seq.
2. Section 943.15 is amended by adding paragraph (i) to read as
follows:
943.15 Approval of regulatory program amendments.
* * * * *
(i) With the exceptions of TCMR 786.215(e)(1), review of
violations, to the extent that it allows the Commission to presume that
a notice of violation has been or is being corrected; TCMR 786.215(f),
permit denial for pattern of violations; TCMR 788.225(e)(1)(B), review
criteria, to the extent that it allows the Commission to presume that a
notice of violation has been or is being corrected; and TCMR
788.225(f)(3), remedial measures, the revisions to 16 Texas
Administrative Code 11.221, the Coal Mining Regulations of the Railroad
Commission of Texas, as submitted on February 8, 1993, and as revised
on July 7, 1993, are approved effective March 21, 1994. Revisions to
the following regulations are approved:
TCMR 778.116(l) and (m), identification of interests and compliance
information.
TCMR 786.215(e)(1) and (2), review of permit applications.
TCMR 786.215(g), final compliance review.
TCMR 788.225(e), (e)(1)(A), (e)(2), and (e)(3), commission review
of outstanding permits: review criteria.
TCMR 788.225(f), (f)(1) and (f)(2), commission review of
outstanding permits: remedial measures.
TCMR 788.225(g), right of appeal.
TCMR 843.680(c), cessation orders.
3. Section 943.16 is amended by revising the introductory
paragraph, removing and reserving paragraphs (b), (e), (g), (h), and
(i), revising paragraphs (c), (d), (f), and (j), and adding paragraphs
(r) and (s), to read as follows:
943.16 Required program amendments.
Pursuant to 30 CFR 732.17(f)(1), Texas is required to submit to OSM
by the specified date the following written, proposed program
amendment, or a description of an amendment to be proposed that meets
the requirements of SMCRA and 30 CFR Chapter VII and a timetable for
enactment that is consistent with Texas' established administrative or
legislative procedures.
* * * * *
(b) [Reserved]
(c) By May 20, 1994, Texas shall formally propose an amendment to
OSM for TCMR 778.116(m) or otherwise modify its program to require a
permit application to also include information on
(1) Violations received pursuant to SMCRA's implementing Federal
regulations, all SMCRA-approved Federal programs (OSM-administered
Indian lands program and Federal programs for States), and all SMCRA-
approved State programs, not just the Texas program, and
(2) Air or water environmental protection violations received
pursuant to any State laws, rules or regulations enacted pursuant to
Federal laws, rules, or regulations and incurred by the applicant in
any State, not just Texas.
(d) By May 20, 1994, Texas shall formally propose an amendment to
OSM for TCMR 786.215(e)(1) to require the Commission to consider, as a
basis for permit denial, information on cessation orders issued by
States other than Texas.
(e) [Reserved]
(f) By May 20, 1994, Texas shall formally propose an amendment to
OSM for TCMR 786.215(f) addressing the review of permit applications to
require that issuance of permits is specifically prohibited whenever
the Commission makes a determination that the applicant, anyone who
owns or controls the applicant, or the operator specified in the
application controls or has controlled surface coal mining and
reclamation operations with a demonstrated pattern of willful
violations of TSCMRA, SMCRA, SMCRA's implementing Federal regulations,
SMCRA-approved Federal programs, and all SMCRA-approved State programs,
not just the Texas program, of such nature, duration, and with such
resulting irreparable damage to the environment, as to indicate an
intent not to comply with these laws, rules, and regulations.
(g) [Reserved]
(h) [Reserved]
(i) [Reserved]
(j) By May 20, 1994, Texas shall formally purpose an amendment to
OSM for TCMR 788.225(f), concerning remedial measures for improvidently
issued permits, or otherwise revise its program to
(1) Provide, as a counterpart to 30 CFR 773.20(c)(3), another
possible remedial measure for improvidently issued permits that allows
suspension of the improvidently issued permit until the violation is
abated or the penalty or fee is paid,
(2) Specify the conditions no less effective than those at 30 CFR
773.21(a) (1) through (4) that must be met in order to prevent
suspension or rescission of an improvidently issued permit.
(3) Require that after a permit is suspended or rescinded all
surface coal mining and reclamation operations being conducted under
that permit must cease, except for violation abatement and for
reclamation and other environmental protection measures as required by
the regulatory authority.
(4) Provide for the same time periods as those specified in the
Federal regulations at 30 CFR 773.21, require that a decision to
suspend or rescind an improvidently issued permit must become effective
within these specified time periods, and allow the Commission
sufficient flexibility and discretion to suspend and rescind a permit
rapidly when it is appropriate.
* * * * *
(r) By May 20, 1994, Texas shall formally propose to OSM an
amendment revising section 21(c) of the Texas Surface Coal Mining and
Reclamation Act to remove the words ``within the state'' from the
phrase ``inconnection with any surface coal mining operation within the
state during the three-year period'' in the first sentence of section
21(c).
(s) By May 20, 1994, Texas shall formally propose an amendment to
OSM for TCMR 786.216(i) to either
(1) Delete TCMR 786.216(i) or
(2) revise it to specifically prohibit issuance of permits in all
situations where it is determined that the applicant, anyone who owns
or controls the applicant, or the operator specified in the application
controls or has controlled surface coal mining and reclamation
operations with a demonstrated pattern of willful violation of TSCMRA,
SMCRA, SMCRA's implementing Federal regulations, SMCRA-approved Federal
programs, and the SMCRA-approved programs of all States, of such
nature, duration, and with such resulting irreparable damage to the
environment that indicates an intent not to comply with these laws,
rules, and regulations.
[FR Doc. 94-6495 Filed 3-18-94; 8:45 am]
BILLING CODE 4310-05-M