[Federal Register Volume 60, Number 31 (Wednesday, February 15, 1995)]
[Rules and Regulations]
[Pages 8553-8555]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 95-3445]



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DEPARTMENT OF THE INTERIOR

Office of the Secretary

25 CFR Chapter VI

RIN 1076-AD19


Tribal Self-Governance Program Selection Criteria

AGENCY: Office of Self-Governance, Office of the Secretary, Interior

ACTION: Interim rule.

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SUMMARY: In this interim rule, the Office of Self-Governance (OSG) 
announces the criteria for tribes to be included in an applicant pool 
and the establishment of the selection process for tribes to negotiate 
agreements pursuant to the Tribal Self-Governance Act of 1994.

DATES: Effective date of this interim rule is February 15, 1995. 
Written comments concerning this rule must be received on or before 
April 17, 1995. The closing date for submission of complete application 
packages for consideration for negotiations in 1996 is May 16, 1995. No 
application package will be dated as received before March 17, 1995.
    Applications requesting to be included in the applicant pool may be 
submitted at any time. All tribes wishing to be considered for 
participation in FY 1996 must respond to this announcement, except for 
those which are (1) currently involved with negotiations with the 
Department or (2) one of the 29 tribes with signed agreements in the 
Demonstration Project.

ADDRESSES: Written comments concerning this rulemaking should be sent 
to Director, Office of Self-Governance, U.S. Department of the 
Interior, 1849 C Street NW., Mail Stop 2548, Washington, DC 20240.

FOR FURTHER INFORMATION CONTACT: Verner V. Duus, U.S. Department of the 
Interior, Office of Self-Governance, 1849 C Street NW., Mail Stop 2548, 
Washington, DC 20240, 202-219-0240.

SUPPLEMENTARY INFORMATION:

Justification for Interim Rule

    Implementation of this rule is not rulemaking subject to the 
provisions of section 553 of the Administrative Procedure Act (5 U.S.C. 
551, et seq.) (APA). Section 553(a)(2) excepts from the scope of 
rulemaking rules ``relating to agency management or personnel or to 
public property, loans, grants, benefits, or contracts.''
    Even if this rule were considered rulemaking subject to the 
provisions of section 553 of the APA, good cause exists to publish this 
interim rule without prior opportunity for public comment for the 
following reasons.
    Section 553 outlines the following rulemaking steps: (1) 
Publication of a notice of proposed rulemaking, (2) solicitation of 
public comment on the proposed rule, (3) review of comments received 
prior to developing the final rule, and (4) publication of the final 
rule 30 days prior to the effective date. Using this process at this 
time would not serve the goal of the Tribal Self-Governance Act of 
1994, which is to expand tribal participation in the Self-Governance 
Program, because the process would delay selection of new participating 
tribes for FY 1996. Under the Tribal Self-Governance Act of 1994, the 
Secretary may select up to 20 additional participating tribes for the 
Tribal Self-Governance Program, and negotiate and enter into an annual 
written funding agreement with each participating tribe. The Act 
mandates that the Secretary [[Page 8554]] submit copies of the funding 
agreements at least 90 days before the proposed effective date to the 
appropriate committees of the Congress and to each tribe that is served 
by the BIA agency that is serving the tribe that is a party to the 
funding agreement. Initial negotiations with a tribe located in an area 
and/or agency which has not previously been involved with self-
governance negotiations, will take approximately 3 months from start to 
finish. Since agreements for tribes on an October 1 to September 30 
fiscal year need to be signed and submitted by July 1, new 
participating tribes would need to be selected by April 1 to allow 
sufficient time for negotiations. Publication of this interim rule 
without prior opportunity for public comment is necessary to complete 
the above procedures in a timely fashion. Therefore, pursuant to 5 
U.S.C. 553(b)(3)(B), good cause is found that notice and public comment 
procedures are impracticable, and pursuant to 5 U.S.C. 553(d), good 
cause exists to make the rule effective immediately.

Background

    The Tribal Self-Governance Program is designed to promote self 
determination by allowing tribes to assume more control of programs 
operated by the Department of the Interior through negotiated 
agreements. The new law allows for negotiations to be conducted for 
programs operated by the Bureau of Indian Affairs (BIA) and for 
programs operated by other bureaus and offices within the Department 
that are available to Indians or where there is an historical, 
cultural, or geographic connection to an Indian tribe.
    At the time of this announcement, 29 compacts have been signed 
under the provisions of the Demonstration Project. In addition to these 
29 tribal entities, the newly enacted Tribal Self-Governance Act of 
1994, Public Law 103-413, authorizes the Secretary to negotiate with up 
to 20 new tribes per year. Congress has also provided guidance 
concerning the handling of signatory tribes in Alaskan consortiums. If 
they are eligible to negotiate on their own and choose to do so, they 
should not be counted as part of the 20 new tribes.

Purpose of Rule

    This interim rule identifies the procedures and criteria that the 
Office of Self-Governance will use in establishing the priority listing 
of the additional participating tribes under the Tribal Self-Governance 
Act of 1994. While this interim rule may be changed at a later date by 
the rulemaking established pursuant to the Act, the Act stipulates that 
the lack of promulgated regulations will not limit its effect. This 
rule will take immediate effect to allow the application and selection 
process for the upcoming year to begin.
    The Secretary's decision on the actual number of tribes that will 
enter negotiations will be made at a later date. Being on the list will 
not guarantee that a tribe will actually be provided the opportunity to 
negotiate in any given year; however, it does mean that a tribe will 
not be passed over for a tribe farther down on the list or an unlisted 
tribe with the exception of tribes that are already in the negotiations 
process. For example, if the Department determines that 20 tribes will 
be afforded the opportunity to negotiate self-governance agreements in 
1996, the first 20 tribes on the list would be notified and 
negotiations would be scheduled. The tribe numbered 21 on the list 
would become number one on the list for 1997 or might enter 
negotiations in 1996 if one of the first 20 dropped out.
    The Department is adopting this rule before beginning the 
negotiated rulemaking process as required by Congress to establish 
definitive rules for the total self-governance program. This interim 
rule governing the selection process and criteria will be subject to 
negotiation and amendment by the negotiated rulemaking committee. The 
committee will use any comments received following the publication of 
this interim rule in negotiating the final rule. Furthermore, the 
portion of the rule governing selection will be subject to additional 
comment once the proposed regulations recommended by the negotiated 
rulemaking committee are published in the Federal Register. The final 
published rule will supersede this interim rule.

A. E.O. 12612

    The Department has determined that this interim rule does not have 
significant federalism effects.

B. E.O. 12630

    In accordance with Executive Order 12630, the Department had 
determined that this rule does not have significant takings 
implications.

C. E.O. 12778

    The Department has certified to the Office of Management and Budget 
that this interim rule meets the applicable standards provided in 
Sections 2(a) and 2(b)(2) of Executive Order 12778.

D. E.O. 12866

    This interim rule is not a significant regulatory action under 
Executive Order 12866, and therefore will not be reviewed by the Office 
of Management and Budget.

E. Regulatory Flexibility Act Statement

    This interim rule will not have a significant economic impact on a 
substantial number of small entities under the Regulatory Flexibility 
Act (5 U.S.C. 601 et seq.).

F. NEPA Statement

    The Department has determined that this interim rule does not 
constitute a major Federal action significantly affecting the quality 
of the human environment and that no detailed statement is required 
pursuant to the National Environmental Policy Act of 1969.

G. Information Collection Statement

    The information collection requirements contained in this interim 
rule are included in current collections 1076-0090, 0091, 0096, 1030 
and OMB circulars A-102, A-110, and SF-424.

H. Authorship Statement

    The primary author of this document is Verner V. Duus, Office of 
Self-Governance.
List of Subjects in Part 1001
    Indians, Native Americans.

    For the reasons set forth in the preamble, a new chapter VI 
consisting at this time of part 1001 is added to Title 25 of the Code 
of Federal Regulations as follows:
CHAPTER VI--OFFICE OF THE ASSISTANT SECRETARY--INDIAN AFFAIRS, 
DEPARTMENT OF THE INTERIOR
PART 1001--SELF-GOVERNANCE PROGRAM
Sec.

1001.1  Purpose.
1001.2  Applicant eligibility.
1001.3  Priority ranking for negotiations.
1001.4  Application review and approval.
1001.5  Application review and selection process for negotiations 
for funding agreements.
1001.6  Submitting applications.

    Authority: 25 U.S.C. 450 note, 458aa-458gg.


Sec. 1001.1  Purpose.

    The purpose of this rule is to establish the process for tribes to 
apply for entry into the Self-Governance program and to establish the 
selection criteria by which the Department will identify eligible 
tribes and select tribes to begin the negotiations process.


Sec. 1001.2  Applicant eligibility.

    Any tribe or consortium of tribes seeking inclusion in the 
applicant pool [[Page 8555]] must meet the following eligibility 
criteria:
    (a) Be a federally recognized tribe or a consortium of federally 
recognized tribes as defined in Public Law 93-638.
    (b) Document, with an official action of the tribal governing body, 
a formal request to enter negotiations with the Department of Interior 
(Department) under the Tribal Self-Governance Act authority. In the 
case of a consortium of tribes, the governing body of each 
participating tribe must authorize participation by an official action 
by the tribal governing body.
    (c) Demonstrate financial stability and financial management 
capability by furnishing organization-wide single audit reports as 
prescribed by Public Law 96-502, the Single Audit Act of 1984, for the 
previous three years. These audits must not contain material audit 
exceptions. In the case of tribal consortiums, each signatory to the 
agreement must meet this requirement. Non-signatory tribes 
participating in the consortium do not have to meet this requirement.
    (d) Successfully complete the planning phase for self-governance. A 
final planning report must be submitted which demonstrates that the 
tribe has conducted--
    (1) legal and budgetary research; and
    (2) internal tribal government and organizational planning.
    (e) To be included in the applicant pool, tribes or tribal 
consortiums may submit their applications at any time. The application 
should state which year the tribe desires to enter negotiations.


Sec. 1001.3  Priority ranking for negotiations.

    In addition to the eligibility criteria identified above, a tribe 
or consortium of tribes seeking priority ranking for negotiations must 
submit a description of the efforts of the tribe or consortium to seek 
to enter negotiations and/or prepare for operations under the self-
governance option. This narrative should identify any activities that 
the tribe has pursued, carefully identifying and documenting the dates 
involved, including, but not limited to, the following:
    (a) Prior planning activities related to self-governance, noting 
the source of funding for the planning activity and whether or not it 
was sanctioned by the Office of Self-Governance (OSG), including 
documentation as applicable.
    (b) Prior efforts to secure planning and/or negotiation grants.
    (c) Meetings with the OSG or other Departmental offices in which 
the tribe expressed an interest in participating in the Self-Governance 
Project.
    (d) Correspondence between the tribe and the Department in which 
the tribe has expressed an interest in participating in the Self-
Governance Project.
    (e) All actions of the tribal governing body related to 
participating in the self-governance option.


Sec. 1001.4  Application review and approval.

    Upon receipt of an application, the OSG will review the package and 
determine whether or not it is complete. Upon determination that it is 
complete, the name of the tribe or consortium will be included in the 
official applicant pool. Incomplete submissions will be returned with 
the deficiencies identified. Revised applications may be resubmitted 
for consideration at any time.


Sec. 1001.5  Application review and selection process for negotiations 
for funding agreements.

    Upon acceptance into the applicant pool, the OSG will assign to 
each tribe or consortium a ranking relative to other applicants based 
upon the date the OSG receives the complete application package. This 
ranking will constitute a master list that will be maintained and 
updated on a continuous basis from year to year. When receipt dates are 
the same for two or more applications, several other factors will be 
considered in determining the placement of the tribe or consortium on 
the list. These factors are identified in priority order as follows:
    (a) Designation by the Congress through report language that a 
tribe should be considered for participation. These designations will 
be considered based upon the actual language of the report.
    (b) Documentation of OSG sanctioning of the tribe's self-governance 
planning and subsequent evidence of actual planning by the tribe.
    (c) Submission of a completed planning or negotiation grant 
application in the previous year.
    (d) A signed agreement pursuant to the Indian Health Service (IHS) 
self-governance project.
    (e) Receipt of a planning grant awarded by the IHS.


Sec. 1001.6  Submitting Applications.

    (a) Applications for inclusion in the applicant pool will be 
accepted on an on-going basis.
    (b) Applications may be mailed or hand-delivered.
    (c) Applications for negotiations in 1996 that are mailed must be 
postmarked no later than May 16, 1995.
    (d) Applications must be sent to: Director, Office of Self 
Governance, Department of the Interior, 1849 C Street, NW MIB RM/MS-
2548, Washington, DC 20240.

    Dated: February 6, 1995.
Ada E. Deer,
Assistant Secretary, Indian Affairs.
[FR Doc. 95-3445 Filed 2-14-95; 8:45 am]
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