[Federal Register Volume 79, Number 200 (Thursday, October 16, 2014)]
[Rules and Regulations]
[Pages 61990-61992]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2014-24528]
[[Page 61990]]
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DEPARTMENT OF TRANSPORTATION
Federal Aviation Administration
14 CFR Part 406
[Docket No. FAA-2014-0822; Amdt. No. 406-8]
RIN 2120-AK55
Civil Penalty Inflation Adjustment for Commercial Space
Adjudications; Second Amendment
AGENCY: Federal Aviation Administration, DOT.
ACTION: Immediately adopted final rule.
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SUMMARY: This final rule is the second mandatory inflation-based
adjustment to the maximum civil penalty authorized for violations of
the Commercial Space Launch Act of 1984, as amended. This adjustment is
done to bring the authorized penalty for violations into compliance
with the requirements of the Federal Civil Penalties Inflation
Adjustment Act of 1990, as amended by the Debt Collection Improvement
Act of 1996.
DATES: Effective November 17, 2014.
FOR FURTHER INFORMATION CONTACT: Alex Zektser, General Attorney, Office
of the Chief Counsel, International Law, Legislation, and Regulations
Division, AGC-200, Federal Aviation Administration, 800 Independence
Avenue SW., Washington, DC 20591; telephone (202) 267-3073; email
[email protected].
SUPPLEMENTARY INFORMATION:
Authority for This Rulemaking and Applicable Statutes
The statute under which the Secretary of Transportation regulates
commercial space transportation, 51 U.S.C. Subtitle V, sections 50901-
50923 (chapter 509), provides for the Department of Transportation
(DOT), and, through delegation, the Federal Aviation Administration
(FAA) to impose civil penalties on persons who violate chapter 509, a
regulation issued under chapter 509, or any term or condition of a
license or permit issued or transferred under chapter 509. 51 U.S.C.
50906(h)-(i), 50917.
This rule implements the Federal Civil Penalties Inflation
Adjustment Act of 1990 (FCPIAA), Public Law (Pub. L.) 101-410, as
amended by the Debt Collection Improvement Act (DCIA) of 1996, Public
Law 104-134, codified at 28 U.S.C. 2461 note.
The FCPIAA and DCIA require Federal agencies to adjust minimum and
maximum civil penalty amounts for inflation to preserve their deterrent
impact. Under these laws, each agency must make an initial inflationary
adjustment for all applicable civil monetary penalties, and further
adjust these penalties at least once every four years. The agency must
adjust the amount of the penalty using a strict statutory formula
discussed in more detail below.
Prior Rulemakings
This rule is the FAA's second adjustment to the maximum civil
penalty found in 14 CFR part 406 which governs commercial space
transportation adjudications. The initial adjustment to the maximum
civil penalty found in 14 CFR part 406 occurred in 2010.\1\
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\1\ Civil Penalty Inflation Adjustment for Commercial Space
Adjudications, 75 FR 30690 (June 2, 2010).
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Background
The FCPIAA determines inflationary adjustments by increasing civil
penalties by a cost-of-living adjustment (COLA). Under the FCPIAA, the
COLA for each civil penalty is the percentage by which the U.S.
Department of Labor's Consumer Price Index for all-urban consumers
(CPI-U) for the month of June of the calendar year preceding the
adjustment exceeds the CPI-U for the month of June of the calendar year
in which the amount of such civil penalty was last set or adjusted
pursuant to the FCPIAA. The FCPIAA contains specific rules for rounding
the inflationary increase.
Method of Calculation
Section 406.9 of 14 CFR currently imposes a maximum civil penalty
of $110,000 for violations of chapter 509, a regulation proscribed
under chapter 509, or any term or condition of a license or permit
issued or transferred under chapter 509. To determine the appropriate
adjustment that must be made pursuant to the FCPIAA, we first find the
CPI-U for June of the calendar year preceding the year of adjustment is
determined. Because the adjustment in this case is being made in 2014,
we will use the June of 2013 CPI-U, which is 233.504.\2\ Next, we
determine the CPI-U for June of the year the civil penalty was last
adjusted. Because the civil penalty was last adjusted in 2010, we would
use the CPI-U for June of 2010, which is 217.965.\3\
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\2\ See Bureau of Labor Statistics, CPI Detailed Report: Data
for June 2013, Table 1, which may be found at http://www.bls.gov/cpi/cpid1306.pdf.
\3\ See Bureau of Labor Statistics, CPI Detailed Report: Data
for June 2010, Table 1, which may be found at http://www.bls.gov/cpi/cpid1006.pdf.
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Next, we use the above CPI-U numbers to calculate the COLA. To do
this, we subtract the CPI-U for June 2010 (217.965) from the CPI-U of
June 2013 (233.504). We then divide the resulting difference (15.539)
by the CPI-U for June 2010 (217.965). The resulting quotient (.07129)
is then multiplied by 100 yielding a COLA of 7.129%.
To calculate the raw inflationary increase we multiply the current
maximum civil penalty ($110,000) by the COLA (7.129%). This provides a
raw inflation increase of $7,842. Next, we round the raw inflation
amounts by the statutory rounding formula found in Section 5(a) of the
FCPIAA. Determination of the proper rounding formula depends on the
current amount of the civil penalty at the time the calculation is
made, not the size of the raw inflationary increase. The applicable
rounding formula for the existing civil penalty of $110,000 would be
that ``[a]ny increase . . . is rounded to the nearest . . . [m]ultiple
of $10,000 in the case of penalties greater than $100,000 but less than
or equal to $200,000 . . .'' Thus, the raw increase of $7,842 becomes
$10,000 after being rounded to the nearest $10,000. Finally, the
increase of $10,000 is added to the current civil penalty $110,000,
resulting in an inflation-adjusted civil penalty of $120,000.
Good Cause for Not Having Notice and Comment
Under the Administrative Procedure Act, 5 U.S.C. 553(b)(B), a final
rule may be issued without public notice and comment if the agency
finds good cause that notice and comment are impractical, unnecessary,
or contrary to public interest. Good cause exists in this case to
dispense with public notice and comment because adjustments to civil
penalties for inflation are required by Congress, as set forth in
Section 5 of the FCPIAA, in order to maintain the deterrent effect of
civil penalties and promote compliance with the law. The FCPIAA serves
as a Congressional mandate and the FAA may not exercise any discretion
or policy judgments. The FAA also has no discretion as to the amount of
the adjustment because the amount of the adjustment is determined using
a strict statutory formula. Since the FCPIAA does not provide the FAA
with any discretion regarding any aspect of this rulemaking, the FAA
would be unable to make any changes to this rule in response to public
comment. Accordingly, public comment is unnecessary in this case.
Paperwork Reduction Act
The Paperwork Reduction Act of 1995, 44 U.S.C. 3507(d), requires
that
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the FAA consider the impact of paperwork and other information
collection burdens imposed on the public. The FAA has determined that
there are no current or new requirements for information collection
associated with this rule.
International Compatibility
In keeping with U.S. obligations under the Convention on
International Civil Aviation, it is FAA policy to conform to
International Civil Aviation Organization (ICAO) Standards and
Recommended Practices to the maximum extent practicable. The FAA has
determined that there are no ICAO Standards and Recommended Practices
that correspond to these regulations.
Regulatory Evaluation, Regulatory Flexibility Determination,
International Trade Impact Assessment, and Unfunded Mandates Assessment
Changes to Federal regulations must undergo several economic
analyses. First, Executive Order 12866 directs that each Federal agency
shall propose or adopt a regulation only upon a reasoned determination
that the benefits of the intended regulations justify its costs.
Second, the Regulatory Flexibility Act of 1980 (RFA), Public Law 96-
354, codified at 5 U.S.C. 601-612, as amended by the Small Business
Regulatory Enforcement Fairness Act of 1996, Public Law 104-121,
requires agencies to analyze the economic impact of regulatory changes
on small entities. Third, the Trade Agreements Act of 1999 (Trade Act),
Public Law 96-39, codified at 19 U.S.C. 2501-2581, prohibits agencies
from setting standards that create unnecessary obstacles to the foreign
commerce of the U.S. In developing U.S. standards, the Trade Act
requires agencies to consider international standards and, where
appropriate, that they be the basis of U.S. standards. Fourth, the
Unfunded Mandates Reform Act of 1995, (Pub. L. 104-4), codified at 2
U.S.C. 658, 1501-03, and 1531-34, requires agencies to prepare a
written assessment of the costs, benefits, and other effects of
proposed or final rules that include a Federal mandate likely to result
in the expenditure by State, local, or tribal governments, in the
aggregate, or by the private sector, of $100 million or more, in any
one year (adjusted for inflation).
DOT Order 2100.5 prescribes policies and procedures for
simplification, analysis, and review of regulations. If the expected
impact is so minimal that a proposed or final rule does not warrant a
full evaluation, this order permits that a statement to that effect and
the basis for it be included in the preamble if a full regulatory
evaluation of the cost and benefits is not prepared. Such a
determination has been made for this final rule. The reasoning for this
determination is as follows. This rule adjusts for inflation the
maximum civil penalty for violations of the Commercial Space Launch Act
of 1984, to be in compliance with the Federal Civil Penalties Inflation
Adjustment Act of 1990. This inflation adjustment is an economic
transfer and not a social cost.
Regulatory Flexibility Determination
The Regulatory Flexibility Act of 1980 (Pub. L. 96-354) (RFA)
establishes ``as a principle of regulatory issuance that agencies shall
endeavor, consistent with the objectives of the rule and of applicable
statutes, to fit regulatory and informational requirements to the scale
of the businesses, organizations, and governmental jurisdictions
subject to regulation. To achieve this principle, agencies are required
to solicit and consider flexible regulatory proposals and to explain
the rationale for their actions to assure that such proposals are given
serious consideration.'' The RFA covers a wide-range of small entities,
including small businesses, not-for-profit organizations, and small
governmental jurisdictions.
Agencies must perform a review to determine whether a rule will
have a significant economic impact on a substantial number of small
entities. If the agency determines that it will, the agency must
prepare a regulatory flexibility analysis as described in the RFA.
However, if an agency determines that a rule is not expected to
have a significant economic impact on a substantial number of small
entities, section 605(b) of the RFA provides that the head of the
agency may so certify and a regulatory flexibility analysis is not
required. The certification must include a statement providing the
factual basis for this determination, and the reasoning should be
clear.
As already noted, this rule adjusts for inflation only, as required
by the Federal Civil Penalties Inflation Adjustment Act of 1990.
Therefore, as FAA Administrator, I certify that this rule will not have
a significant economic impact on a substantial number of small
entities.
International Trade Impact Assessment
The Trade Agreements Act of 1979 (Pub. L. 96-39) prohibits Federal
agencies from establishing any standards or engaging in related
activities that create unnecessary obstacles to the foreign commerce of
the United States. Legitimate domestic objectives, such as safety, are
not considered unnecessary obstacles. The statute also requires
consideration of international standards and, where appropriate, that
they be the basis for U.S. standards.
The FAA has assessed the potential effect of this final rule and
determined that it would impose identical inflation adjusted civil
penalties on domestic and international entities that violate 14 CFR
part 406, and thus would have a neutral trade impact. Furthermore, the
inflationary adjustment is a legitimate domestic objective preserving
the existing deterrent impact of 51 U.S.C. subtitle V, chapter 509.
Therefore, we have determined that this rule will result in a neutral
impact on international trade.
Unfunded Mandates Assessment
Title II of the Unfunded Mandates Reform Act of 1995 (Pub. L. 104-
4) requires each Federal agency to prepare a written statement
assessing the effects of any Federal mandate in a proposed or final
agency rule that may result in an expenditure of $100 million or more
(adjusted annually for inflation with the base year 1995) in any one
year by State, local, and tribal governments, in the aggregate, or by
the private sector; such a mandate is deemed to be a ``significant
regulatory action.'' The FAA currently uses an inflation-adjusted value
of $151 million in lieu of $100 million.
Because this final rule only increases a civil penalty by $10,000,
as required by FCPIAA, it does not contain a mandate that meets this
threshold amount. Therefore, the requirements of Title II of the act do
not apply.
Executive Order 13132, Federalism
The FAA has analyzed this final rule under the principles and
criteria of Executive Order 13132, Federalism. The FAA determined that
this action would not have a substantial direct effect on the States,
or the relationship between the national government and the States, or
on the distribution of power and responsibilities among the various
levels of government. Therefore, the FAA has determined that this final
rule does not have federalism implications.
Environmental Analysis
FAA Order 1050.1E defines FAA actions that are categorically
excluded from preparation of an environmental assessment or
environmental impact statement under the National Environmental Policy
Act (NEPA) in the absence of extraordinary circumstances. The FAA has
determined this final rule qualifies for the categorical exclusion
identified in Chapter 3, paragraph 312d,
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and involves no extraordinary circumstances.
Regulations That Significantly Affect Energy Supply, Distribution, or
Use
The FAA has analyzed this final rule under Executive Order 13211,
Actions Concerning Regulations that Significantly Affect Energy Supply,
Distribution, or Use (May 18, 2001). We have determined that it is not
a ``significant energy action'' under the executive order because it is
not a ``significant regulatory action'' under Executive Order 12866,
and it is not likely to have a significant adverse effect on the
supply, distribution, or use of energy.
Availability of Rulemaking Documents
You can get an electronic copy of rulemaking documents using the
Internet by--
1. Searching the Federal eRulemaking Portal (http://www.regulations.gov);
2. Visiting the FAA's Regulations and Policies Web page at http://www.faa.gov/regulations_policies/rulemaking/; or
3. Accessing the Government Printing Office's Web page at http://www.gpoaccess.gov/fr/index.html.
You can also get a copy by sending a request to the Federal
Aviation Administration, Office of Rulemaking, ARM-1, 800 Independence
Avenue SW., Washington, DC 20591, or by calling (202) 267-9680. Make
sure to identify the amendment number or docket number of this
rulemaking.
Anyone is able to search the electronic form of all comments
received into any of our dockets by the name of the individual
submitting the comment (or signing the comment, if submitted on behalf
of an association, business, labor union, etc.). You may review DOT's
complete Privacy Act statement in the Federal Register published on
April 11, 2000 (Volume 65, Number 70; Pages 19477-78) or you may visit
http://www.regulations.gov.
Small Business Regulatory Enforcement Fairness Act
The Small Business Regulatory Enforcement Fairness Act (SBREFA) of
1996 requires the FAA to comply with small entity requests for
information or advice about compliance with statutes and regulations
within its jurisdiction. If you are a small entity and you have a
question regarding this document, you may contact your local FAA
official, or the person listed under the FOR FURTHER INFORMATION
CONTACT heading at the beginning of the preamble. You can find out more
about SBREFA on the Internet at http://www.faa.gov/regulations_policies/rulemaking/sbre-act/">http://www.faa.gov/regulations_policies/rulemaking/sbre-act/.
List of Subjects in 14 CFR Part 406
Administrative procedure and review, Commercial space
transportation, Enforcement, Investigations, Penalties, Rules of
adjudication.
The Amendment
In consideration of the Foregoing, the Federal Aviation
Administration amends part 406 of Title 14, Code of Federal Regulations
as follows:
PART 406--INVESTIGATIONS, ENFORCEMENT, AND ADMINISTRATIVE REVIEW
0
1. The authority citation for part 406 continues to read as follows:
Authority: 51 U.S.C. 50901-50923.
0
2. Amend Sec. 406.9 by revising paragraph (a) to read as follows:
Sec. 406.9 Civil penalties.
(a) Civil penalty liability. Under 51 U.S.C. 50917(c), a person
found by the FAA to have violated a requirement of the Act, a
regulation issued under the Act, or any term or condition of a license
or permit issued or transferred under the Act, is liable to the United
States for a civil penalty of not more than $120,000 for each
violation, as adjusted for inflation. A separate violation occurs for
each day the violation continues.
* * * * *
Issued under authority provided by 49 U.S.C. 106(f) and 51
U.S.C. 50904-50905 in Washington, DC, on September 29, 2014.
Michael P. Huerta,
Administrator.
[FR Doc. 2014-24528 Filed 10-15-14; 8:45 am]
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