[Federal Register Volume 60, Number 128 (Wednesday, July 5, 1995)]
[Proposed Rules]
[Pages 34934-34937]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 95-16378]



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DEPARTMENT OF THE INTERIOR

Office of Surface Mining Reclamation and Enforcement

30 CFR Part 948


West Virginia Program Amendment

AGENCY: Office of Surface Mining Reclamation and Enforcement (OSM), 
Interior.

ACTION: Proposed rule; reopening and extension of public comment 
period.

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SUMMARY: OSM is announcing the receipt of additional revisions to the 
West Virginia permanent regulatory 

[[Page 34935]]
program (hereinafter referred to as the West Virginia program) under 
the Surface Mining Control and Reclamation Act of 1977 (SMCRA). The 
additional revisions pertain to a previously proposed amendment (WV-
074) to West Virginia's Surface Mining Reclamation Regulations. The 
proposed revisions concern the definition of chemical treatment, 
ownership and control files, roads, as-built designs, noncoal mine 
waste, durable rock fills, small operator assistance and other matters. 
The amendment is intended to improve operational efficiency and revise 
the West Virginia program to be consistent with the corresponding 
Federal regulations and SMCRA.

DATES: Written comments must be received on or before 4 p.m. on July 
20, 1995.

ADDRESSES: Written comments should be mailed or hand delivered to James 
C. Blankenship, Jr., Director, Charleston Field Office at the address 
listed below
    Copies of the proposed amendment, the West Virginia program, and 
the administrative record are available for public review and copying 
at the addresses below during normal business hours, Monday through 
Friday, excluding holidays. Each requester may receive one free copy of 
the proposed amendment by contacting OSM's Charleston Field Office.

James C. Blankenship, Jr., Director, Charleston Field Office, Office of 
Surface Mining Reclamation and Enforcement, 1027 Virginia Street, East, 
Charleston, West Virginia 25301, Telephone: (304) 347-7158
West Virginia Division of Environmental Protection, 10 McJunkin Road, 
Nitro, West Virginia 25143, Telephone (304) 759-0515

    In addition, copies of the proposed amendments are available for 
inspection during regular business hours at the following locations:

Office of Surface Mining Reclamation and Enforcement, Morgantown Area 
Office, 75 High Street, Room 229, PO Box 886, Morgantown, West Virginia 
26507, Telephone: (304) 291-4004
Office of Surface Mining Reclamation and Enforcement, Beckley Area 
Office, 323 Harper Park Drive, Suite 3, Beckley, West Virginia 25801, 
Telephone: (304) 255-5265
Office of Surface Mining Reclamation and Enforcement, Logan Area 
Office, 313 Hudgins Street, 2nd Floor, PO Box 506, Logan, West Virginia 
25601, Telephone: (304) 752-2851

FOR FURTHER INFORMATION CONTACT:
Mr. James C. Blankership, Jr., Director, Charleston Field Office; 
Telephone: (304) 347-7158.
SUPPLEMENTARY INFORMATION:

I. Background

    SMCRA was passed in 1977 to address environmental and safety 
problems associated with coal mining. Under SMCRA, OSM works with 
States to ensure that coal mines are operated in a manner that protects 
citizens and the environment during mining, that the land is restored 
to beneficial use following mining, and that the effects of past mining 
at abandoned coal mines are mitigated.
    Many coal-producing States, including West Virginia, have sought 
and obtained approval from the Secretary of the Interior to carry out 
SMCRA's requirements within their borders. In becoming the primary 
enforcers of SMCRA, these ``primacy'' states accept a shared 
responsibility with OSM to achieve the goals of the Act. Such States 
join with OSM in a shared commitment to the protection of citizens--our 
primary customers--from abusive mining practices, to be responsive to 
their concerns, and to allow them full access to information needed to 
evaluate the effects of mining on their health, safety, general 
welfare, and property. This commitment also recognizes the need for 
clear, fair, and consistently applied policies that are not 
unnecessarily burdensome to the coal industry--producers of an 
important source of our Nation's energy.
    Under SMCRA, OSM sets minimum regulatory and reclamation standards. 
Each primacy State ensures that coal mines are operated and reclaimed 
in accordance with the standards in its approved State program. The 
States serve as the front-line authorities for implementation and 
enforcement of SMCRA, while OSM maintains a State performance 
evaluation role and provides funding and technical assistance to States 
to carry out their approved programs. OSM also is responsible for 
taking direct enforcement action in a primacy State, if needed, to 
protect the public in cases of imminent harm or, following appropriate 
notice to the State, when a State acts in an arbitrary and capricious 
manner in not taking needed enforcement actions required under its 
approved regulatory program.
    Currently there are 24 primacy states that administer and enforce 
regulatory programs under SMCRA. These states may amend their programs, 
with OSM approval, at any time so long as they remain no less effective 
than Federal regulatory requirements. In addition, whenever SMCRA or 
implementing Federal regulations are revised, OSM is required to notify 
the States of the changes so that they can revise their programs 
accordingly to remain no less effective than the Federal requirements.
    On January 21, 1981, the Secretary of the Interior conditionally 
approved the West Virginia program. Background information on the West 
Virginia program, including the Secretary's findings, the disposition 
of comments, and the conditions of approval can be found in the January 
21, 1981, Federal Register (46 FR 5915). Subsequent actions concerning 
the conditions of approval and program amendments can be found at 30 
CFR 948.10, 948.12, 948.13, 948.15, and 948.16.

II. Discussion of the Proposed Amendment

    In a series of three letters dated June 28, 1993, and July 30, 1993 
(Administrative Record Nos. WV-888, WV-889 and WV-893), the West 
Virginia Division of Environmental Protection (WVDEP) submitted an 
amendment to its approved permanent regulatory program that included 
numerous revisions to the West Virginia Surface Coal Mining and 
Reclamation Act (WVSCMRA Sec. 22A-3-1 et seq.) and the West Virginia 
Surface Mining Reclamation Regulations (CSR Sec. 38-2-1 et seq.)
    OSM announced receipt of the proposed amendment in the August 12, 
1993, Federal Register (58 FR 42903) and invited public comment on its 
adequacy. Following this initial comment period, WVDEP revised the 
amendment on March 12, 1994, and September 1, 1994 (Administrative 
Record Nos. WV-933 and WV-937). OSM reopened the comment period on 
August 31, 1994, September 29, 1994, and May 19, 1995, and held public 
meetings in Charleston, West Virginia on September 7, 1993, October 27, 
1994, and May 30, 1995.
    OSM and WVDEP held a telephone conference on January 18, 1995, to 
discuss the States revisions to the program amendment which were 
submitted on September 1, 1994, and announced for public comment in the 
September 29, 1994, Federal Register (59 FR 49620). This meeting was 
followed-up by a letter on February 15, 1995, which identified 
provisions in the September 1, 1994, submittal where OSM either needed 
further clarification or where OSM believed the proposal was less 
effective than the Federal rules.
    The WVDEP responded by revising and resubmitting the September 1, 
1994, revisions on May 8, 1995 and May 16, 1995, (Administrative Record 
Nos. 979A and 979B). These revisions were passed by the West Virginia 
Legislature as House Bill--2134. Also included were 

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new State initiatives found in Senate Bills--287 and 350, and House 
Bill--2523.
    This notice requests public comment on the revised program 
revisions and new initiatives submitted to OSM by the WVDEP on May 8, 
1995 and May 16, 1995. These revisions include the following:

1. CSR 38-2-2.92  Definitions

    The WVDEP proposes to define ``chemical treatment'' as it applies 
to the prohibition of bond release where water treatment is necessary 
to bring point source discharges into compliance with effluent 
standards.

2. CSR 38-2-3.1(o)  Ownership and Control File

    The WVDEP proposes to add a provision which will allow permittee, 
upon request and with the approval of the Director, to submit and 
maintain a centralized ownership and control file. Any permit 
application which references an approved centralized ownership and 
control file may be determined to be complete and accurate for all 
permitting actions including revisions, transfers, assignments and 
sales.

3. CSR 38-2-3.26  Ownership and Control Changes

    The WVDEP proposes to add provisions governing the reporting of 
name changes, replacements, and additions to the ownership and control 
information for any surface mining operation or permittee. The 
permittee or operator is required to notify the Director if no changes 
have occurred.

4. CSR 38-2-3.27(a)  Permit Renewals

    The WVDEP proposes to add a provision which will allow the Director 
to waive the requirements for permit renewal if the permittee certifies 
in writing that all coal extraction is completed, that all backfilling 
and regrading will be completed within 60 days prior to the expiration 
date of the permit and that an application for Phase I bond release 
will be filed prior to the expiration date of the permit. Failure to 
complete backfilling and regrading within 60 days prior to the 
expiration date of the permit will nullify the waiver.

5. CSR 38-2-3.34 (b), (g)  Improvidently Issued Permits

    The WVDEP proposes to amend paragraph (b) by inserting the phrase 
``in paragraph (b) of subsection 3.32 of this section'' to clarify that 
if a permit is issued at a time in which the applicant was in violation 
of environmental laws that the permit was improperly issued and must be 
withdrawn. Paragraph (g) is being revised to clarify that permit 
issuance includes permit revisions for ownership and control purposes.

6. CSR 38-2-4.4  Infrequently Used Access Roads

    The WVDEP proposes to add a provision requiring infrequently used 
access roads to be designed to ensure environmental protection 
appropriate for their planned duration and use, and to be constructed 
in accordance with current prudent engineering practices and any 
necessary design criteria established by the Director. A statement has 
been added to clarify that prospecting roads are to be designed, 
constructed, maintained, and reclaimed in accordance with subsection 
13.6 which governs prospecting roads. Cross references have also been 
revised.

7. CSR 38-2-4.7(a)(1)  Performance Standards for Roads

    The WVDEP proposes to add a new provision requiring that each road 
be designed, located, constructed, maintained, and reclaimed so as to 
minimize downstream sedimentation and flooding.

8. CSR 38-2-4.12  Certification

    The WVDEP proposes to add a provision requiring that, where the 
certification statement for a primary road indicates a change from 
design standards or construction requirements in the approved permit, 
such changes must be documented in as-built plans and submitted as a 
permit revision.

9. CSR 38-2-13.6 (a)(7), (f)(6)  Prospecting Roads
    WVDEP proposes to correct a typographical error at paragraph (a)(7) 
and to revise paragraph (f)(6) by requiring topsoil removal and 
replacement in accordance with section 14.3.

10. CSR 38-2-14.14(g)(8)  Durable Rock Fills

    The WVDEP proposes to amend its rules to require that surface 
runoff from areas above and adjacent to durable rock fills be diverted 
into channels which have bee designed using the best current technology 
available to safely pass the peak runoff from a 100 year, 24-hour 
precipitation event. The channel must be designed and constructed to 
ensure stability of the fill, control erosion, and minimize 
infiltration into the fill.

11. CSR 38-2-14.15(M)  Coal Processing Waste Disposal

    The WVDEP proposes to add provisions governing the placement of 
coal processing waste in the backfill. Disposal facilities must be 
designed using current prudent engineering practices and must meet any 
design criteria established by the regulatory authority. Designs must 
be certified by a qualified registered professional engineer. Under the 
proposal, no coal processing waste that contains acid-producing or 
toxic-forming material may be placed in the backfill.

12. CSR 38-2-14.19  Disposal of Noncoal Waste

    WVDEP proposes to add provisions to regulate the disposal of 
noncoal waste such as grease, lubricants, garbage, abandoned machinery, 
lumber and other materials generated during mining activities. Under 
the proposal, final disposal of noncoal waste will be in accordance 
with a permit issued pursuant to Chapter 22, Article 15 of the Code of 
West Virginia (Solid Waste Management Act). Timber from clearing and 
grubbing operations may be wind-rowed at the projected toe of the 
outslope.

13. CSR 38-2-17 Small Operator Assistance

    WVDEP proposes to increase the production limit of those operators 
eligible for assistance under the Small Operator Assistance Program 
(SOAP) from 100,000 to 300,000 tons and to provide for payment of 
additional services as authorized under the Energy Policy Act of 1992. 
WVDEP is also proposing to provide for interstate coordination and 
exchange of information collected under SOAP.

14. CSR 38-2-17.3(b) Eligibility for Assistance

    WVDEP proposes to use the total attributed annual production in 
determining eligibility for assistance under SOAP. Production from 
operations where the applicant owns more than a 10 percent interest 
will be attributed to the applicant.

15. CSR 38-2-17.4 Request for Assistance

    WVDEP proposes to require SOAP applicants to provide information on 
forms provided by the Director of WVDEP.

16. CSR 38-2-17.7 (a)(4)  Liability of SOAP Operators

    The WVDEP proposes to clarify that SOAP applicants will be liable 
for the cost of program services performed if 

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actual and attributed production for all locations exceed 300,000 tons 
during the 12 month period immediately following permit issuance.

17. CSR 38-2C-4  Training of Blasters

    WVDEP proposes to add a provision that would allow applicants for 
certification or recertification to complete a self-study course in 
lieu of the existing training program. Self-study materials would be 
provided by the WVDEP.

18 CSR 38-2C-10.1  Violations by a Certified Blaster

    WVDEP proposes to remove language authorizing the Director to issue 
a cessation order and/or take other action as provided by the WVSCMRA 
Sec. 22-3-16 and 17 when a certified blaster is in violation of WVSCMRA 
Sec. 22-3-1. The Director retains his authority to issue a notice of 
violation.

19. CSR 38-2C-11  Penalties

    WVDEP proposes to revise its rules to provide for a hearing before 
the Director to show cause why a blasters certification should not be 
suspended.

20. CSR 38-D-4.4(b)  Reclamation Objectives and Priorities

    WVDEP proposes to clarify its objectives and priorities for 
abandoned mine lands reclamation projects by indicating the provision 
applies to ``past' coal mining practices which may or may not 
constitute an extreme danger.

21. CSR 38-2D-6.3(a)  Acceptance of Gifts of Land

    WVDEP proposes to remove the requirement that the director accept 
gifts of land in accordance with Department of Justice procedures for 
the acquisition of real property.

22. CSR 38-2D-8.7(a)  Grant Application Procedures

    WVDEP proposes to remove provisions which describe the procedures 
for submitting a grant application to OSM for the reclamation of 
abandoned mine lands.

23. WV Sec. 22B-3-4(c)  Environmental Quality Board Rulemaking 
Authority
    WVDEP proposes to authorize the Environmental Quality Board to 
grant variances to in-stream water quality standards for coal remining 
operations. The standards established in the variance would exist for 
the term of the NPDES permit. Under the proposal, the Board will 
promulgate procedural rules on granting site-specific coal remining 
variances. At a minimum, the procedures would include a description of 
the data and information required from an applicant for a variance, 
criteria employed by the board in its decision, and provisions for 
public comment and hearing. The proposed rule gives direction as to 
when a variance may be granted.
    WVDEP gave notice to OSM that WVSCMRA Sec. 22-3-8-6(B) was being 
revised to require that an operator provide the Director with proof of 
payment of workers compensation premiums on an annual basis, and that 
Sec. 22-1-6(D)(7) was being revised to authorize the Director to employ 
in-house council to perform all legal services. The director finds that 
these revisions do not require an amendment to the West Virginia State 
Program pursuant to 30 CFR 732.17(c).

III. Public Comment Procedures

    OSM is extending the comment period to provide the public an 
opportunity to comment on the proposed revisions in the State program. 
In accordance with 30 CFR 732.17(h), OSM is seeking comments on whether 
the proposed amendment satisfies the applicable program criteria of 30 
CFR 732.15. If the amendment is deemed adequate, it will become part of 
the West Virginia program.

Written Comments

    Written comments should be specific, pertain only to the issues 
proposed in this rulemaking, and include explanations in support of the 
commenter's recommendations. Comments received after the time indicated 
under DATES or at locations other than the OSM Charleston Field Office 
will not necessarily be considered in the final rulemaking or included 
in the Administrative Record.

IV. Procedural Determinations

Executive Order 12866

    This rule is exempted from review by the Office of Management and 
Budget (OMB) under Executive Order 12866 (Regulatory Planning and 
Review).

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, to the extent allowed by law, 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.

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)).

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.).

Regulatory Flexibility Act

    The Department of the Interior has determined that this 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.). 
The State submittal which is the subject of this rule is based upon 
corresponding 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. Accordingly, 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 corresponding Federal regulations.

List of Subjects in 30 CFR Part 948

    Intergovernmental relations, Surface mining, Underground mining.

    Dated: June 28, 1995.
Ronald C. Recker,
Acting Regional Director, Appalachian Regional Coordinating Center.
[FR Doc. 95-16378 Filed 7-3-95; 8:45 am]
BILLING CODE 4310-05-M