[Federal Register Volume 74, Number 231 (Thursday, December 3, 2009)]
[Notices]
[Pages 63407-63409]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: E9-28879]


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DEPARTMENT OF THE INTERIOR

Office of the Secretary


National Environmental Policy Act (NEPA) Implementing Procedures

AGENCY: Office of the Secretary, Interior.

ACTION: Notice of proposed change to the Departmental Manual; request 
for comments.

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SUMMARY: The Department of the Interior (Department) proposes to

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amend its Departmental Manual (DM) by adding a new chapter to provide 
supplementary requirements for implementing the National Environmental 
Policy Act (NEPA) within the Department's Office of Hawaiian Relations 
(OHR). By publishing these changes in the Federal Register, the 
Department intends to promote greater transparency and accountability 
to the public and enhance cooperative conservation.

DATES: Submit comments by January 4, 2010.

ADDRESSES: You may submit comments by any of the following methods. 
Please reference 516 DM 7 in your message. See also ``Public 
availability of comments'' under Procedural Requirements below.
     E-mail [email protected] and use the reference 
``516 DM 7'' in the subject line.
     Fax: 202-208-3698. Identify with ``516 DM 7''.
     Mail or hand-carry comments to the Department of the 
Interior, Office of Hawaiian Relations, Room Number 3543, Main Interior 
Building, 1849 C Street, NW., Washington, DC 20240. Please reference 
``516 DM 7'' in your comments and also include your name and return 
address.
     Public availability of comments--before including your 
address, phone number, e-mail address, or other personal identifying 
information in your comment, you should be aware that your entire 
comment--including your personal identifying information--may be made 
publicly available at any time. While you can ask us in your comment to 
withhold your personal identifying information from public review, we 
cannot guarantee that we will be able to do so.

FOR FURTHER INFORMATION CONTACT: Ka`i`ini Kaloi, Director; Office of 
Hawaiian Relations; 1849 C Street, NW.; Washington, DC 20240. 
Telephone: 202-513-0712. E-mail: [email protected].

SUPPLEMENTARY INFORMATION: Congress passed the Hawaiian Homes 
Commission Act (HHCA) in 1921, creating the Commission and designating 
approximately 200,000 acres available to rehabilitate the indigenous 
Hawaiian population by providing them with access to farm and homestead 
land. Under section 204(3) of the HHCA, ch. 42, 42 Stat. 110 (1921), 
all available lands were to become Hawaiian Home lands under control of 
the Commission, provided that ``such lands should assume the status of 
the Hawaiian Home lands until the Commission, with the approval of the 
Secretary of the Interior, makes the selection and gives notice thereof 
to the Commissioner of Public Lands.'' 42 Stat. 110 (1921).
    Thirty-three years later, Congress passed the Act of June 18, 1954, 
ch. 319, 68 Stat. 262, which amended the HHCA, adding new subsection 
204(4) ``to permit the [Commission] to exchange available lands as 
designated by the Act, for public land of equal value.'' H.R. Rep. No. 
1517, 83d Cong., 2d Sess. (1954); S. Rep. No. 1486, 83d Cong., 2d Sess. 
2 (1954). New section 204(4) provided that ``the Commission may with 
the approval of the Governor (Governor approval no longer required) and 
the Secretary of the Interior, in purposes of this Act, exchange title 
to available lands for land publicly owned, of equal value.'' 68 Stat. 
262 (1954). Hence, it was clear Congress intended the Commission would 
not have the authority to consummate any land exchange without 
secretarial approval.
    After Hawaii was admitted to the Union in 1959, the responsibility 
for the administration of the Hawaiian Home lands was transferred to 
the State of Hawaii. Section 4 of the Hawaiian Admission Act, Public 
Law 86-3, 73 Stat. 5 (1959), 48 U.S.C. nt. Prec. Sec.  491 (1982) 
provides: ``[A]s a compact with the United States relating to the 
management and disposition of the Hawaiian Home lands, the Hawaiian 
Homes Commission Act, 1920, as amended, shall be adopted as a provision 
of the Constitution of such State.'' Thus, secretarial approval 
remained necessary before the Commission was empowered to conduct land 
exchanges.
    In 1995, Congress again iterated its intent to have the Secretary 
provide oversight of land exchanges occurring under the auspices of the 
HHCA. The Hawaiian Home Lands Recovery Act of 1995 (HHLRA), Public Law 
104-42, 109 Stat. 357, gave oversight responsibilities to the Secretary 
of the Department of Interior to ensure that real property under the 
HHCA is, among other things, administered in a manner which best serves 
the interests of the beneficiaries.
    The words of section 204(3) of the HHCA make clear that a land 
exchange is not valid until it has been approved by the Secretary (or 
his designee), but does not suggest that the Secretary is required to 
approve every land exchange placed before him. Indeed, the Secretary 
must at a minimum, satisfy himself that either of the purposes set 
forth in section 204(3) is met (i.e., that the exchange would 
consolidate Homes Commission holdings, or that it would help to 
``better effectuate'' the purposes of the Homes Commission Act), and 
that the lands proposed for exchange are ``of an equal value''. Each of 
these elements requires the exercise of judgment, most particularly the 
element of equal value for land valuations can be highly subjective and 
land appraisals are understood to represent an art, not a science. 
Because the discharge of the responsibility placed on the Secretary is 
discretionary and not ministerial, approval of a land exchange is 
subject to NEPA. In general, section 102(2)(C) of NEPA, 42 U.S.C. 
4332(2)(C) provides that a ``detailed statement'' must be prepared 
whenever a major Federal action will have a significant impact on the 
quality of the human environment.
    Compliance Statements:
    1. Regulatory Planning and Review (E.O. 12866).
    This document is not a significant policy change and the Office of 
Management and Budget (OMB) has not reviewed this DM change under E.O. 
12866. We have made the assessments required by E.O. 12866 and have 
determined that this departmental policy:
    (1) Will not have an effect of $100 million or more on the economy. 
It will not adversely affect in a material way the economy, 
productivity, competition, jobs, the environment, public health or 
safety, or State, local, or tribal governments or communities.
    (2) Will not create a serious inconsistency or otherwise interfere 
with an action taken or planned by another agency.
    (3) Does not alter the budgetary effects of entitlements, grants, 
user fees, or loan programs or the rights or obligations of their 
recipients.
    (4) Does not raise novel legal or policy issues.
    2. Regulatory Flexibility Act.
    The Department certifies that this document 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.).
    3. Small Business Regulatory Enforcement Fairness Act (SBREFA).
    This DM change is not a major rule under 5 U.S.C. 804(2), the Small 
Business Regulatory Enforcement Fairness Act. The OMB made the 
determination that this DM change:
    a. Does not have an annual effect on the economy of $100 million or 
more.
    b. Will not cause a major increase in costs or prices for 
consumers, individual industries, Federal, State, or local government 
agencies, or geographic regions.
    c. Does not have significant adverse effects on competition, 
employment, investment, productivity, innovation, or

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the ability of U.S.-based enterprises to compete with foreign-based 
enterprises.
    4. Unfunded Mandates Reform Act.
    This departmental manual change does not impose an unfunded mandate 
on State, local, or tribal governments or the private sector of more 
than $100 million per year. A statement containing the information 
required by the Unfunded Mandates Reform Act (2 U.S.C. 1531 et seq.) is 
not required.
    5. Takings (E.O. 12630).
    Under the criteria in E.O. 12630, this departmental manual change 
does not have significant takings implications. A takings implication 
assessment is not required.
    6. Federalism (E.O. 13132).
    Under the criteria in E.O. 13132, this DM change does not have 
sufficient Federalism implications to warrant the preparation of a 
Federalism summary impact statement. A Federalism summary impact 
statement is not required.
    7. Consultation With Indian tribes (E.O. 13175).
    Under the criteria in E.O. 13175, we have evaluated this DM change 
and determined that it has no potential effects on federally recognized 
Indian tribes since Native Hawaiians are not a federally recognized 
Indian tribe.
    8. National Environmental Policy Act.
    The CEQ does not direct agencies to prepare a NEPA analysis or 
document before establishing agency procedures that supplement the CEQ 
regulations for implementing NEPA. Agency NEPA procedures are 
procedural guidance to assist agencies in the fulfillment of agency 
responsibilities under NEPA, but are not the agency's final 
determination of what level of NEPA analysis is required for a 
particular proposed action. The requirements for establishing agency 
NEPA procedures are set forth at 40 CFR 1505.1 and 1507.3. The 
determination that establishing agency NEPA procedures does not require 
NEPA analysis and documentation has been upheld in Heartwood, Inc. v. 
U.S. Forest Service, 73 F. Supp. 2d 962, 972-73 (S.D. III. 1999), aff'd 
230 F.3d 947. 954-55 (7th Cir. 2000).
    9. Paperwork Reduction Act.
    This rule does not contain information collection requirements, and 
a submission under the Paperwork Reduction Act is not required.

Willie R. Taylor,
Director, Office of Environmental Policy and Compliance.

    For the reasons stated in the preamble, the Department proposes to 
amend its DM by adding a new chapter to provide supplementary 
requirements for implementing provisions of 516 DM 1 through 4 within 
the Department's Office of Hawaiian Relations (OHR), as set forth 
below:

PART 516: NATIONAL ENVIRONMENTAL POLICY ACT OF 1969

CHAPTER 7: MANAGING THE NEPA PROCESS--OFFICE OF HAWAIIAN RELATIONS

    7.1 Purpose. This Chapter provides supplementary requirements for 
implementing provisions of 516 DM 1 through 6 within the Department's 
Office of Hawaiian Relations.
    7.2 NEPA Responsibility.
    A. The Director of the Office of Hawaiian Relations is responsible 
for NEPA compliance for OHR activities.
    B. The Director of the Office of Hawaiian Relations, in conjunction 
with the Office of Environmental Policy Compliance, provides direction 
and oversight for environmental activities, including the 
implementation of NEPA.
    C. The OHR may request the Department of Hawaiian Home Lands (DHHL) 
to assist in preparing NEPA documentation for a proposed action 
submitted by the Secretary.
    7.3 Guidance to DHHL.
    A. Actions Proposed by the DHHL requiring OHR or other Federal 
approval.
    (1) The OHR retains sole responsibility and discretion in all NEPA 
compliance matters related to the proposed action, although the 
Director of OHR may request the DHHL to assist in preparing all NEPA 
documentation.
    B. Actions proposed by the DHHL not requiring Federal approval, 
funding, or official actions, are not subject to NEPA requirements.
    7.4 Actions Normally Requiring an Environmental Assessment (EA) or 
Environmental Impact Statement (EIS) if these activities are connected 
to a land exchange requiring the Secretary's approval.
    A. The following actions require preparation of an EA or EIS:
    (1) Actions not categorically excluded; or
    (2) Actions involving extraordinary circumstances as provided in 43 
C.F.R. Part 46.215.
    B. Actions not categorically excluded or involving extraordinary 
circumstances as provided in 43 C.F.R. Part 46.210, will require an EA 
when:
    (1) An EA will be used in deciding whether a finding of no 
significant impact is appropriate, or whether an EIS is required prior 
to implementing any action.
    (2) The action is not being addressed by an EIS.
    C. If an EA is prepared, it will comply with the requirements of 43 
CFR part 46 subpart D.
    D. The following actions normally require the preparation of an 
EIS:
    (1) Proposed water development projects which would inundate more 
than 1,000 acres of land, or store more than 30,000 acre-feet of water, 
or irrigate more than 5,000 acres of undeveloped land.
    (2) Construction of a treatment, storage or disposal facility for 
hazardous waste or toxic substances.
    (3) Construction of a solid waste facility.
    E. If an EIS is prepared, it will comply with the requirements of 
43 CFR part 46 subpart E
    7.5 Categorical Exclusion. In addition to the actions listed in the 
Departmental categorical exclusions specified in section 43 C.F.R. 
46.210, the following action is categorically excluded unless any of 
the extraordinary circumstances in section 43 C.F.R. 46.215 apply, thus 
requiring an EA or an EIS. This activity is a single, independent 
action not associated with larger, existing or proposed complexes or 
facilities.
    A. Approval of conveyances, exchanges and other transfers of land 
or interests in land between DHHL, and an agency of the State of 
Hawaii, or a Federal agency, where no change in the land use is 
planned.

[FR Doc. E9-28879 Filed 12-2-09; 8:45 am]
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