[Federal Register Volume 60, Number 25 (Tuesday, February 7, 1995)]
[Proposed Rules]
[Pages 7152-7154]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 95-2876]
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DEPARTMENT OF THE INTERIOR
Minerals Management Service
30 CFR Chapter II
RIN 1010-AB57
Notice of Establishment of the Indian Gas Valuation Negotiated
Rulemaking Committee
AGENCY: Minerals Management Service, Interior.
ACTION: Establishment of advisory committee.
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SUMMARY: As required by Section 9(a)(2) of the Federal Advisory
Committee Act (FACA), 5 U.S.C. App., the Department of the Interior
(Department) is giving notice of the establishment of the Indian Gas
Valuation Negotiated Rulemaking Committee (Committee) to develop
specific recommendations with respect to Indian gas valuation pursuant
to its responsibilities imposed by the Federal Oil and Gas Royalty
Management Act of [[Page 7153]] 1982, 30 U.S.C. 1701 et seq. (FOGRMA).
The Department has determined that the establishment of this Committee
is in the public interest and will assist the Agency in performing its
duties under FOGRMA. Copies of the Committee's charter will be filed
with the appropriate committees of Congress and the Library of Congress
in accordance with section 9(c) of FACA.
FOR FURTHER INFORMATION CONTACT: Mr. Donald T. Sant, Deputy Associate
Director for Valuation and Operations, Minerals Management Service,
Royalty Management Program, P.O. Box 25165, MS-3900, Denver, Colorado,
80225-0165, telephone number (303) 231-3899, fax number (303) 231-3194.
SUPPLEMENTARY INFORMATION: Through an informal study group, MMS has
conducted discussions to receive input on the current gas market and
identify the challenges facing royalty valuation of gas produced from
Indian leases for royalty purposes. The discussions have gone well and
needs for regulatory changes have been identified. The MMS now believes
that using a negotiated rulemaking committee to make specific
recommendations with respect to Indian gas valuation would help the
agency in developing a rulemaking. The Department is, therefore,
establishing the Indian Gas Valuation Negotiated Rulemaking Committee.
Background
Since the publication of the March 1, 1988, gas valuation
regulations many of MMS's constituents have expressed concern about the
valuation basis for Indian gas royalties. Concern has focused upon the
scope of the Secretary of the Interior's (Secretary) discretion to
determine the values of lease substances for royalty purposes in a
manner consistent with the Federal trust responsibility to Indian
beneficiaries. Moreover, the implementation of specific valuation
methodologies in paragraph 3(c) of standard Indian oil and gas leases,
such as, dual accounting, and major portion analysis, has been
problematic. Those difficulties include issues of comparability,
certainty, and access to information. As part of Vice President Gore's
National Performance Review (NPR), the Royalty Management Program
recently initiated a Reinvention Laboratory Team to examine ways to
streamline the royalty management process. One of the overall
recommendations of that team was to improve the gas valuation process
on Indian lands.
Statutory Provisions
FOGRMA (30 U.S.C. 1701 et seq.), Indian Mineral Development Act of
1982 (25 U.S.C. 2101-2108; and 25 U.S.C. 2 and 9), 30 CFR Part 206
(1993), 25 CFR Part 225 (1994), and Indian oil and gas lease and
agreement terms.
The Committee and Its Process
To carry out the Secretary's trust responsibility to Indian mineral
lessors, the MMS met during the winter and spring of 1994 with
representatives of several tribes and allottee associations to receive
input about the current gas market and identify regulatory changes
needed to add certainty and simplicity to valuation, for royalty
purposes, of gas produced from Indian leases. The purpose of the
meetings was to ensure that Indian mineral lessors receive the maximum
revenues from mineral resources on their land consistent with the
Secretary's trust responsibility and lease terms. An informal study
group format was used to obtain and clarify varying viewpoints. The
first work product of the study group was publication, on August 4,
1994, of an Advance Notice of Proposed Rulemaking soliciting comments
on new methodologies being considered to establish value on production
from Indian leases. The materials received to date during the input
sessions are available for inspection and copying at the address
referenced above for Mr. Donald T. Sant. Members of the study group
currently include tribal and allottee representatives involving from
time to time the Navajo Nation, the Jicarilla Apache Tribe, the Native
American Rights Fund, the Shoshone and Arapaho Tribes of the Wind River
Reservation, the Northern Ute Tribe, the Southern Ute Tribe, the
Council of Energy Resource Tribes, the Bureau of Indian Affairs (BIA),
and MMS. To get specific input from the oil and gas industry, the study
group anticipates adding new members representing the interests of
large, medium, and small operators. New members will include
representatives from Conoco Inc.--a large integrated company with
significant production from Indian lands, Meridian Oil Inc.--a large
independent company producing gas from Indian lands, Mid-Continent Oil
and Gas Association--a trade association with members from both the
major and independent oil and gas industry, and a private sector
attorney from Holmes, Roberts and Owens--with clients that produce gas
from Indian lands in the Rocky Mountain area.
The MMS and the study group participants believe that the input
sessions have been mutually beneficial. As a result, MMS now believes
it would be appropriate for the study group to transform itself and
make specific regulatory recommendations for implementing a rulemaking
regarding Indian gas valuation. The Department is therefore
establishing the Indian Gas Valuation Negotiated Rulemaking Committee.
The recently enacted Negotiated Rulemaking Act of 1990 (Pub. L.
101-648) contemplates a ``convening'' process which involves
identifying the potential parties and issues, publishing a notice of
intent to form a committee, waiting 30 days for comments to be
submitted responding to the notice, and only then proceeding with the
establishment of the committee provided it meets the criteria of the
Act. In this case, the study group process has served the same function
as the convening--parties that would be significantly affected and the
issues in controversy have been identified. The study group's
discussions have also enabled the MMS to determine that the criteria
for negotiated rules, as spelled out in the Negotiated Rulemaking Act,
are met for this rule:
The rule is needed, since royalty payors have considerable
difficulty in complying with the current regulations at the time
royalties are due, particularly in the current gas market.
A limited number of identifiable interests will be
significantly affected by the rule. Those parties are oil and gas
companies who produce gas and pay royalties on Indian leases and Indian
tribes and allottees who receive royalties from gas produced from
Indian leases located on their lands.
Representatives can be selected to adequately represent
these interests, as reflected above.
The interests are willing to negotiate in good faith to
attempt to reach a consensus on a proposed rule.
There is reasonable likelihood that the Committee will
reach consensus on a proposed rule within a reasonable time. This
determination has been made based on discussions of the study group,
and hence is built on the developments to date.
The use of the negotiation will not delay the development
of the rule if time limits are placed on the negotiation. Indeed, its
use will expedite it and the ultimate acceptance of the rule.
The Department is not proposing to issue a separate notice of
intent to form a negotiated rulemaking committee for this rule. Given
the evolution of this committee, the publication of such a notice would
only slow down the [[Page 7154]] rulemaking process and the functions
of the notice of intent have either already been met or are provided
for in this notice. Moreover, the Negotiated Rulemaking Act
specifically provides that its provisions are not mandatory.
The Negotiated Rulemaking Act does anticipate an outreach to ensure
that people who were not contacted during the convening process can
come forward to explain why they believe they would be significantly
affected and yet not represented on the Committee or to argue why they
believe the rule should not be negotiated. The MMS believes that the
interests who would be significantly affected by this rule will be
represented when representatives from Conoco Inc., Meridian Oil Inc.,
Mid-Continent Oil and Gas Association, and as attorney with clients
from the oil and gas industry join the informal study group already in
place which includes representatives from the Indian tribes, allottee
associations, BIA, and MMS. If anyone believes that their interests
will not be adequately represented by these organizations, they must
demonstrate and document that assertion through an application
submitted no later than 10 calendar days following publication of this
notice. You may fax your documentation to (303) 231-3194.
Certification
I hereby certify that the Indian Gas Valuation Negotiated
Rulemaking Committee is in the public interest in connection with the
performance of duties imposed on the Department of the Interior by 30
U.S.C. 1701 et. seq.
Dated: January 31, 1995.
Bruce Babbitt,
Secretary of the Interior.
[FR Doc. 95-2876 Filed 2-6-95; 8:45 am]
BILLING CODE 4130-MR-M