[Federal Register Volume 64, Number 75 (Tuesday, April 20, 1999)]
[Proposed Rules]
[Pages 19327-19330]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 99-9887]



[[Page 19327]]

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DEPARTMENT OF THE INTERIOR

Office of Surface Mining Reclamation and Enforcement

30 CFR Part 948

[WV-081-FOR]


West Virginia Permanent Regulatory Program

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

ACTION: Proposed rule.

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SUMMARY: OSM is announcing receipt of a proposed amendment to the West 
Virginia permanent regulatory program (hereinafter referred to as the 
West Virginia program) under the Surface Mining Control and Reclamation 
Act of 1977 (SMCRA). The amendment revises the West Virginia Code to 
create the Office of Explosives and Blasting, and adds and amends 
sections of the West Virginia Code concerning blasting. The amendment 
is intended to improve the operational efficiency of the State program.

DATES: Written comments must be received on or before 4:00 p.m. on May 
20, 1999. If requested, a public hearing on the proposed amendments 
will be held at 1:00 p.m. on May 17, 1999. Requests to present oral 
testimony at the hearing must be received on or before 4:00 p.m. on May 
5, 1999.

ADDRESSES: Your written comments and requests to speak at the hearing 
should be mailed or hand delivered to Mr. Roger W. Calhoun, Director, 
Charleston Field Office at the address listed below.
    Copies of the proposed amendment, the West Virginia program, and 
the administrative record on the West Virginia program are available 
for public review and copying at the addresses below, during normal 
business hours, Monday through Friday, excluding holidays. You may 
receive one free copy of the proposed amendment by contacting the OSM 
Charleston Field Office.

Mr. Roger W. Calhoun, 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 amendment 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, P.O. 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

FOR FURTHER INFORMATION CONTACT: Mr. Roger W. Calhoun, Director, 
Charleston Field Office; Telephone: (304) 347-7158.

SUPPLEMENTARY INFORMATION:

I. Background on the West Virginia Program

    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 the approval can be found in the 
January 21, 1981, Federal Register (46 FR 5915-5956). Subsequent 
actions concerning the West Virginia program and previous amendments 
are codified at 30 CFR 948.10, 948.12, 948.13, 948.15, and 948.16.

II. Discussion of the Proposed Amendment

    By letter dated March 25, 1999 (Administrative Record Number WV-
1119), the West Virginia Division of Environmental Protection (WVDEP) 
submitted an amendment to the West Virginia program pursuant to 30 CFR 
732.17. The amendment concerns changes to Chapter 22 Article 3 
(Sec. 22-3) and Sec. 22-1 of the West Virginia Code as contained in 
West Virginia Senate Bill (SB) 681. The amendment creates the Office of 
Explosives and Blasting within the WVDEP, and adds and amends sections 
of the West Virginia Code concerning blasting. By letter dated April 1, 
1999 (Administrative Record Number WV-1121), the WVDEP notified us that 
the West Virginia Governor signed SB-681, and provided a copy of the 
signed bill.
    The amendments submitted by the WVDEP are identified below. Minor 
wording changes and other non-substantive changes are not identified.

1. 22-1-7 Offices Within the Division; Continuation of the Office of 
Water Resources

    New section 22-1-7(a)(7) is added to provide that the director 
shall maintain the office of explosives and blasting, which is charged, 
at a minimum, with administering and enforcing, under the supervision 
of the director, the provisions of 22-3A, concerning the office of 
explosives and blasting.

2. 22-3-13 General Environmental Protection Performance Standards for 
Surface Mining; Variances

    Section 22-3-13(a) is amended to change the phrase ``* * * and 
other requirements as the director promulgates'' to read `` * * * and 
other requirements set forth in legislative rules proposed by the 
director.''
    Section 22-3-13(b)(3) is amended to change a proviso statement 
concerning backfilling and grading requirements from, ``Provided 
further, That the director shall promulgate rules governing variances * 
* *'' to read, ``Provided further, That the director shall propose 
rules for legislative approval in accordance with article three, 
chapter twenty-nine-a of this code. * * *''
    Section 22-3-13(b)(15) concerning explosives is amended by deleting 
paragraphs (A), (C), and (E), and relettering the remaining paragraphs. 
Paragraph (D) concerning blaster certification, now relettered as 
paragraph (B), is amended by deleting the word ``director'' and adding 
in its place the words ``office of explosives and blasting.''
    Section 22-3-13(e) concerning variances from approximate original 
contour is amended from the words, ``The director may promulgate rules 
that permit variances * * *'' to read ``The director may propose rules 
for legislative approval in accordance with article three, chapter 
twenty-nine-a of this code, that permit variances. * * *''
    Section 22-3-13(f) concerning coal mine waste piles is also amended 
to provide that the director may propose rules for legislative 
approval, rather than promulgate rules.

3. 22-3-13a Pre-Blast Survey Requirements

    This section is all new. Section 22-3-13a(a) provides that at least 
30 days before blasting, the following notifications shall be made in 
writing to all owners and occupants of man-made dwellings or structures 
that the operator or designee will perform pre-blast surveys: (1) For 
operations less than 200 acres in a single permitted area or less than 
300 acres of contiguous or nearly contiguous area of two or more 
permitted areas, the notifications shall be to all owners and occupants 
within five tenths of a mile of the permitted area or areas; (2) for 
all other surface mining operations, the required notifications shall 
be to all owners or occupants within five tenths of a mile of the 
permitted area or areas, or seven

[[Page 19328]]

tenths of a mile of the proposed blasting site, whichever is greater.
    Section 22-3-13a(b) adds a requirement that operators who have 
already made pre-blast surveys, and if Section 22-3-13a(a)(2) applies, 
shall notify owners and occupants within seven tenths of a mile of the 
blasting site, unless a written waiver is executed in accordance with 
Section 22-3-13(c).
    Section 22-3-13a(c) provides for the waiver of the right to a pre-
blast survey. This provision also provides that if access to conduct a 
pre-blast survey is denied and a waiver is not provided, or to the 
extent that access to any portion of the structure, underground water 
supply or well is impossible or impractical under the circumstances, 
the pre-blast survey shall indicate that access was refused, impossible 
or impractical. The operator or designee shall execute a sworn 
affidavit explaining the reasons and circumstances surrounding the 
refusals. The office of explosives and blasting shall not determine the 
pre-blast survey to be incomplete because it indicates that access was 
refused, impossible, or impractical. The operator shall send copies of 
all written waivers and affidavits to the office of explosives and 
blasting.
    Section 22-3-13a(d) provides that if a pre-blast survey was waived 
by the owner and the property sold, the new owner may request a pre-
blast survey from the operator.
    Section 22-3-13a(e) provides that an owner may request from the 
operator a pre-blast survey on structures conducted after the original 
pre-blast survey.
    Section 22-3-13a(f) provides for the information that a pre-blast 
survey must contain. Such information includes a general description of 
the structure and the survey methods; written documentation and 
drawings, videos or photos of the pre-blast defects, other physical 
conditions, and unusual or substandard construction of all structures, 
appurtenances and water sources which could be affected by blasting; 
written documentation of the water supply; a description of any portion 
of the structure and appurtenances not documented or photographed and 
the reasons; signature of the person performing the survey; and any 
other information required by rule.
    Section 22-3-13a(g) provides that pre-blast surveys shall be 
submitted to the office of explosives and blasting at least 15 days 
prior to the start of blasting. The office shall review each survey for 
completeness only, and notify the operator of any deficiencies. The 
office shall notify the owner and occupant of the location and 
availability of the pre-blast survey, and provide a copy upon request.
    Section 22-3-13a(h) provides that the operator shall file notice of 
the pre-blast survey or waiver in the office of the county clerk of the 
county commission of the county where the man-made dwelling or 
structure is located. The office of explosives and blasting shall 
prescribe the form to be used.
    Section 22-3-13a(i) provides that the chief of the office of 
explosives and blasting shall propose rules for legislative approval in 
accordance with Article 29A-3 of the State Code, dealing with pre-blast 
survey requirements and setting the qualifications for individuals and 
firms performing pre-blast surveys.
    Section 22-3-13a(j) provides that the provisions of Section 22-3-
13a shall not apply to underground coal mining operations, and the 
extraction of minerals by underground mining methods or the surface 
impacts of the underground mining methods.

4. 22-3-22a Blasting Restrictions; Site Specific Blasting Design 
Requirement

    This is a new section. Section 22-3-22a(a) provides that for this 
section, the term ``production blasting'' means blasting that removes 
the overburden to expose underlying coal seams and shall not include 
construction blasting.
    Section 22-3-22a(b) provides that for this section, the term 
``construction blasting'' means blasting to develop haul roads, mine 
access roads, coal preparation plants, drainage structures, or 
underground coal mine sites and shall not include production blasting.
    Section 22-3-22a(c) provides that for this section, the term 
``protected structure'' means any of the following that are outside the 
permit area: an occupied dwelling, a temporarily unoccupied dwelling 
which has been occupied within the past ninety days, a public building, 
a structure for commercial purposes, a school, a church, a community or 
institutional building, a public park or a water well.
    Section 22-3-22a(d) provides that production blasting is prohibited 
within 300 feet of a protected structure or within 100 feet of a 
cemetery.
    Section 22-3-22a(e) provides that blasting within 1000 feet of a 
protected structure shall have a site specific blast design approved by 
the office of explosives and blasting. The design shall limit the type 
of explosives and detonating equipment, the size, the timing and 
frequency of blasts to do the following: (1) Prevent injury to persons; 
(2) prevent damage to property outside the permit area; (3) prevent 
adverse impacts on any underground mine; (4) prevent change in the 
course, channel or availability of ground or surface water outside the 
permit area; and (5) reduce dust outside the permit area. This 
provision also provides that in developing the blasting plan, 
consideration be given to such items as the physical condition, type 
and quality of construction of the protected structure, current use of 
the protected structure, and the concerns of the owner or occupant.
    Section 22-3-22a(f) provides for the waiver in writing of the 
blasting prohibition within 300 feet, or the site specific restriction 
within 1000 feet. The operator shall send copies of all waivers to the 
office of explosives and blasting. Waivers shall be valid during the 
life of the permit and renewals, and shall be enforceable against any 
subsequent owners or occupants of the protected structure.
    Section 22-3-22a(g) provides that this section does not apply to 
underground coal mining operations and the surface operations and 
impacts incident to underground coal operations, or to the extraction 
of minerals by underground mining methods or the surface impacts of the 
underground mining methods. Nothing in this section shall exempt any 
coal mining operation from the general performance standards contained 
in Section 22-3-13 and any implementing rules.

5. 22-3-23(c) Release of Bond or Deposits

    Subsection 22-3-22(c)(3) concerning final bond release is amended 
to add a paragraph which provides that notwithstanding the bond release 
scheduling provisions of subdivisions (1), (2) and (3) of this 
subsection, if the operator completes the backfilling and reclamation 
in accordance with an approved post-mining land use plan that has been 
approved by the division of environmental protection and accepted by a 
local or regional economic development or planning agency for the 
county or region in which the operation is located, provisions for 
sound future maintenance are assured by the local or regional economic 
development or planning agency, and the quality of any untreated 
postmining water discharge complies with applicable water quality 
criteria for bond release, the director may release the entire amount 
of said bond or deposit. The director shall propose rules for 
legislative approval in accordance with the provisions of article 29a-3 
of this code, to govern a bond release pursuant to the terms of this 
paragraph.

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6. 22-3-24 Water Rights and Replacement; Waiver of Replacement

    This Section is being amended to add new subsections (c), (d), (e), 
and (f). New subsection (c) provides that there is a rebuttable 
presumption that a mining operation caused damage to an owner's 
underground water supply if the inspector determines the following: (1) 
Contamination, diminution or damage to an owner's underground water 
supply exists; and (2) a pre-blast survey was performed, consistent 
with the provisions of section 22-3-13a, on the owner's property 
including the underground water supply that indicated that 
contamination, diminution or damage to the underground water supply did 
not exist prior to the mining conducted at the mining operation. The 
operator conducting the mining operation shall: (1) Provide an 
emergency drinking water supply within 24-hours; (2) provide a 
temporary water supply within 72-hours; (3) provide a permanent water 
supply within 30 days; and (4) pay all reasonable costs incurred by the 
owner in securing a water supply.
    New subsection 22-3-24(d) provides that an owner aggrieved under 
the provisions of subsections (b) or (c) of this section, may seek 
relief in court or pursuant to the provisions of 22-3b-6.
    New subsection 22-3-24(e) provides that the director shall propose 
rules for legislative approval to implement the requirements of this 
section.
    New subsection 22-3-24(f) provides that the provisions of 22-3-
24(c) shall not apply to underground coal mining operations, the 
surface operations and impacts incident to an underground coal mine, 
and the extraction of minerals by underground mining methods or the 
surface impacts of the underground mining methods.

7. 22-3-30a Blasting Requirements; Liability and Civil Penalties in the 
Event of Property Damage

    This section is new. Subsection 22-3-30a(a) provides that blasting 
of overburden and coal shall be conducted in accordance with the rules 
and laws established to regulate blasting.
    Subsection 22-3-30a(b) provides the penalties to be imposed for 
each permit area or contiguous permit areas where blasting was out of 
compliance and resulted in property damage to a protected structure as 
defined in 22-3-22a.
    Subsection 22-3-30a(c) provides that the division of environmental 
protection may not impose penalties on an operator for the violation of 
any rule identified in 22-3-30a that is merely administrative in 
nature.
    Subsection 22-3-30a(d) provides that the remedies provided in this 
section are not exclusive and shall not bar an owner or occupant from 
any other remedy accorded by law.
    Subsection 22-3-30a(e) provides that the monetary penalties and 
revocation set out at 22-3-30(b) apply if the division of environmental 
protection establishes that production blasting was conducted within 
the 300 feet, or the 1000 feet standards set out at 22-3-22a, or was 
within 100 feet of a cemetery.
    Subsection 22-3-30(f) provides that all penalties and liabilities 
set forth in this section shall be assessed and collected by the 
director, and deposited with the treasurer of the State of West 
Virginia in the ``general school fund.''
    Subsection 22-3-30(g) provides that the director shall propose 
rules for the implementation of this section.
    Subsection 22-3-30(h) provides that the provisions of this section 
shall not apply to underground coal mining operations and the surface 
operations and impacts incident to underground coal operations, or to 
the extraction of minerals by underground mining methods or the surface 
impacts of the underground mining methods. Nothing in this section 
shall exempt any coal mining operation from the general performance 
standards contained in Section 22-3-13 and any implementing rules.

8. 22-3A Office of Explosives and Blasting

    Article 3A is new . Section 22-3A-1 provides for legislative 
findings, and policies and purposes. Section 22-3A-1 declares that 
establishment of the office of explosives and blasting is in the public 
interest, and that this office will be vested with authority to enforce 
the rules and laws established to regulate blasting.
    Section 22-3A-2 creates the office of explosives and blasting, 
provides that the director shall appoint a chief to administer the 
office, and provides that the office shall assume responsibility for 
the enforcement of all the rules and laws established to regulate 
blasting.
    Section 22-3A-3 establishes the powers and duties of the office of 
explosives and blasting.
    Section 22-3A-4 provides that the office shall propose rules for 
the purpose of implementing Article 22-3A. The rules shall include, but 
not be limited to: procedures for the review, modification and approval 
of blasting plans, inspection and monitoring of blasting; minimum 
requirements for pre-blast surveys; procedures for the use of 
seismographs; a procedure to warn of impending blasting; a procedure to 
limit the type of explosives and detonating equipment, the size, 
timing, and frequency of blasts based on the physical conditions at the 
site to prevent injury, damage, and adverse impacts; publication of 
blasting schedules; and written notice of blasting schedules. The 
office shall also propose rules for blaster certification, and for 
disciplinary procedures for blasters.
    Section 22-3A-5 provides that the office shall establish and manage 
a claims process related to blasting, and shall propose rules 
concerning blasting claims and arbitration. The section also provides 
that participation in the claims process is voluntary, but that claim 
determinations are intended to be final, if not taken to arbitration. 
The section provides for written notice, the payment of claims for 
which an operator is adjudged liable, and for the issuance of cessation 
orders. The section also provides that no permit shall be granted 
unless the applicant agrees to be subject to the terms of this section. 
The section also authorizes the office to retain the services of 
inspectors, experts and other persons or firms as necessary to fulfill 
its responsibilities under this section.
    Section 22-3A-6 provides that rules, orders and permits already 
issued will remain in effect until modified, terminated, superseded, 
set aside or revoked by a court, and that proceedings pending before 
the division are not effected by this enactment.
    Section 22-3A-7 concerns funding. It provides that the office shall 
assess each operator a fee on each quantity of explosive material used 
on the surface mining operations. The office shall propose rules 
establishing the fees, and the office shall deposit all monies received 
into a special fund called the ``mountaintop removal fund'' to be spent 
by the offices in conducting their duties. The legislature shall 
appropriate the funds for expenditure.
    Section 22-3A-8 concerns the transfer of personnel and assets 
currently used to perform the duties of Article 22-3A to the office of 
explosives and blasting
    Section 22-3A-9 sets forth the limitations of Article 22-3A. Except 
for sections five and seven of this article, all provisions of this 
article are also applicable to surface blasting activities related to 
underground mining operations.
    Section 22-3A-10 provides that the office of explosives and 
blasting shall conduct or participate in studies or research to develop 
scientifically based data and recommendations related to various 
aspects of blasting. The office

[[Page 19330]]

shall report the data and recommendations to the joint committee on 
government and finance on or before January 1, 2001, and annually 
thereafter or as otherwise requested.
    Section 22-3A-11 provides that the office of explosives and 
blasting is continued until July 1, 2002.

III. Public Comment Procedures

    We are seeking comments, in accordance with the provisions of 30 
CFR 732.17(h), on the proposed amendment submitted by the State of West 
Virginia by letter dated March 25, 1999. Your comments should address 
whether the proposed amendment satisfies the applicable program 
approval criteria of 30 CFR 732.15. If the amendment is deemed 
adequate, it will become part of the West Virginia program.

Written Comments

    Your written comments should be specific, pertain only to the 
issues proposed in this notice and include explanations in support of 
your 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.

Public Hearing

    If you wish to comment at the public hearing, you should contact 
the person listed above at FOR FURTHER INFORMATION CONTACT by close of 
business on May 5, 1999. If no one requests an opportunity to comment 
at a public hearing, the hearing will not be held.
    If you file a written statement at the same time that you request a 
hearing, the statement will greatly assist the person who will make a 
transcript of the hearing.
    The public hearing will continue on the specified date until all 
persons scheduled to comment have been heard. Persons in the audience 
who have not been scheduled to comment, and who wish to do so, will be 
heard following those scheduled. The hearing will end after all persons 
scheduled to comment and persons present in the audience who wish to 
comment have been heard.

Public Meeting

    If only one person requests an opportunity to comment at a hearing, 
a public meeting, rather than a public hearing, may be held. Persons 
wishing to meet with us to discuss the proposed amendments, may request 
a meeting at the Charleston Field Office by contacting the person 
listed above at FOR FURTHER INFORMATION CONTACT. All such meetings will 
be open to the public and, if possible, notices of meetings will be 
posted in advance at the locations listed above at ADDRESSES. A written 
summary of each public meeting will be made part of the Administrative 
Record.
    If you are disabled and have need for a special accommodation to 
attend a public hearing, please contact the person listed above at FOR 
FURTHER INFORMATION CONTACT.

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 12988

    The Department of the Interior has conducted the reviews required 
by section 3 of Executive Order 12988 (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.

Unfunded Mandates

    This rule will not impose a cost of $100 million or more in any 
given year on any governmental entity or the private sector.

List of Subjects in 30 CFR Part 948

    Intergovernmental relations, Surface mining, Underground mining.

    Dated: April 13, 1999.
H. Vann Weaver,
Acting Regional Director, Appalachian Regional Coordinating Center.
[FR Doc. 99-9887 Filed 4-19-99; 8:45 am]
BILLING CODE 4310-05-P