[Federal Register Volume 81, Number 124 (Tuesday, June 28, 2016)]
[Rules and Regulations]
[Pages 41862-41866]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2016-15268]


=======================================================================
-----------------------------------------------------------------------

DEPARTMENT OF THE INTERIOR

Fish and Wildlife Service

50 CFR Part 11

[Docket No. FWS-HQ-LE-2016-0045; FF09L00200-FX-LE18110900000]
RIN 1018-BB32


Civil Penalties; Inflation Adjustments for Civil Monetary 
Penalties

AGENCY: Fish and Wildlife Service, Interior.

ACTION: Interim rule.

-----------------------------------------------------------------------

SUMMARY: The U.S. Fish and Wildlife Service (Service or we) is revising 
our

[[Page 41863]]

civil procedure regulations. The regulations provide uniform rules and 
procedures for the assessment of civil penalties resulting from 
violations of certain laws and regulations enforced by the Service. We 
are issuing this interim rule, in accordance with the Federal Civil 
Penalties Inflation Adjustment Act Improvements Act of 2015 (Inflation 
Adjustment Act) and Office of Management and Budget (OMB) guidance, to 
adjust for inflation in the statutory civil monetary penalties that may 
be assessed for violations of Service-administered statutes and their 
implementing regulations. We are required to adjust civil monetary 
penalties as necessary for inflation according to a formula specified 
in the Inflation Adjustment Act. This interim rule also revises the 
authority citation of part 11, updates the scope of the regulations, 
and corrects the address for the Departmental Cases Hearings Division, 
Office of Hearings and Appeals, U.S. Department of the Interior.

DATES: This interim rule is effective July 28, 2016. We will accept 
comments on this interim rule received or postmarked on or before 
August 29, 2016.

ADDRESSES: You may submit comments by one of the following methods:
     Federal eRulemaking portal at: http://www.regulations.gov. 
Follow the instructions for submitting comments to Docket No. FWS-HQ-
LE-2016-0045.
     U.S. mail or hand-delivery: Public Comments Processing, 
Attn: FWS-HQ-LE-2016-0045; Division of Policy, Performance, and 
Management Programs; U.S. Fish and Wildlife Service; 5275 Leesburg 
Pike, MS: BPHC, Falls Church, VA 22041-3803.

We will not accept email or faxes. We will post all comments on http://www.regulations.gov. This generally means that we will post any 
personal information that you provide to us (see Public Comments, 
below, for more information).

FOR FURTHER INFORMATION CONTACT: Paul Beiriger, Special Agent in 
Charge, Branch of Investigations, U.S. Fish and Wildlife Service, 
Office of Law Enforcement, (703) 358-1949.

SUPPLEMENTARY INFORMATION: 

Background

    The regulations at 50 CFR part 11 provide uniform rules and 
procedures for the assessment of civil penalties resulting from 
violations of certain laws and regulations enforced by the Service.
    On November 2, 2015, the President signed into law the Federal 
Civil Penalties Inflation Adjustment Act Improvements Act of 2015 (sec. 
701 of Pub. L. 114-74) (Inflation Adjustment Act). The Inflation 
Adjustment Act requires Federal agencies to adjust the level of civil 
monetary penalties with an initial ``catch up'' adjustment through 
rulemaking and then make subsequent annual adjustments for inflation. 
The purpose of these adjustments is to maintain the deterrent effect of 
civil penalties and to further the policy goals of the underlying 
statutes.
    Under section 4 of the Federal Civil Penalties Inflation Adjustment 
Act of 1990, 28 U.S.C. 2461 note, as amended by the Inflation 
Adjustment Act, Public Law 114-74, 129 Stat. 584 (2015), each Federal 
agency is required to issue regulations adjusting for inflation the 
statutory civil monetary penalties (civil penalties) that can be 
imposed under the laws administered by that agency. The Inflation 
Adjustment Act provides for an initial ``catch up adjustment'' to take 
effect no later than August 1, 2016, followed by subsequent adjustments 
to be made no later than January 15 every year thereafter. This interim 
rule adjusts, in accordance with the Inflation Adjustment Act, the 
maximum amount of each statutory penalty that may be imposed for 
violations of Service-administered statutes and their implementing 
regulations. Section 11.33 identifies the applicable Service-
administered statutes and sets out the inflation-adjusted civil penalty 
amounts that may be imposed pursuant to each statutory provision. The 
adjusted penalty amounts are applicable to civil penalties assessed 
after the Inflation Adjustment Act takes effect.
    The Inflation Adjustment Act provides for determining the initial 
catch up adjustment by first determining the cost-of-living adjustment 
(COLA), which is defined in section 5 of the Inflation Adjustment Act 
as the percentage (if any) for each civil monetary penalty by which the 
Consumer Price Index (CPI) for the month of October 2015 exceeds the 
CPI for the month of October of the calendar year during which the 
amount of such civil monetary penalty was established or adjusted under 
a provision of law other than this Act. The Inflation Adjustment Act 
further provides that the initial catch up adjustment shall not exceed 
150 percent of the amount of that civil monetary penalty on the date of 
the enactment of the Inflation Adjustment Act. The CPI is defined in 
the Federal Civil Penalties Inflation Adjustment Act of 1990, 28 U.S.C. 
2461 note, as the CPI for all-urban consumers published by the 
Department of Labor.
    Once the COLA is determined, the current civil penalty is adjusted 
accordingly. For instance, the current maximum civil penalty amount 
under the Bald and Golden Eagle Protection Act (BGEPA) is $5,000, see 
16 U.S.C. 668(b), which was last adjusted in 1972. The CPI in October 
1972 was 42.3 as compared to the CPI in October 2015, which was 
237.838. This represents an increase of over 150 percent, but since the 
Inflation Adjustment Act caps the initial catch up adjustment at 150 
percent, the COLA adjustment for civil penalties under BGEPA will be 
150 percent. Thus, the current civil penalty of $5,000 under BGEPA will 
increase to $12,500 once this regulation becomes effective, as 
described below.
    OMB issued a memorandum, M-16-06, entitled ``Implementation of the 
Federal Civil Penalties Inflation Adjustment Act Improvements Act of 
2015,'' which provides in Table A the civil penalty catch-up adjustment 
multiplier by calendar year. The Appendix to OMB's memorandum provides 
step-by-step instructions for determining the catch up adjustment, and 
the Service determined the adjustments accordingly.

Public Comments

    You may submit your comments and materials concerning this interim 
rule by one of the methods listed in ADDRESSES. We request that you 
send comments only by the methods described in ADDRESSES. We will not 
consider hand-delivered comments that we do not receive, or mailed 
comments that are not postmarked, by the date specified in DATES. If 
you submit information via http://www.regulations.gov, your entire 
submission, including any personal identifying information, will be 
posted on the Web site. If your submission is made via a hard copy that 
includes personal identifying information, you may request at the top 
of your document that we withhold this information from public review. 
However, we cannot guarantee that we will be able to do so. We will 
post all hard copy submissions on http://www.regulations.gov.
    Comments and materials we receive, as well as supporting 
documentation we used in preparing this interim rule, will be available 
for public inspection on http://www.regulations.gov, or by appointment, 
during normal business hours, at the U.S. Fish and Wildlife Service, 
Office of Law Enforcement (see FOR FURTHER INFORMATION CONTACT).

Clarity of the Rule

    We are required by Executive Orders 12866 and 12988 and by the 
Presidential Memorandum of June 1, 1998, to write all rules in plain

[[Page 41864]]

language. This means that each rule we publish must:
    (a) Be logically organized;
    (b) Use the active voice to address readers directly;
    (c) Use clear language rather than jargon;
    (d) Be divided into short sections and sentences; and
    (e) Use lists and tables wherever possible.
    If you feel that we have not met these requirements, send us 
comments by one of the methods listed in ADDRESSES. To better help us 
revise the rule, your comments should be as specific as possible. For 
example, you should tell us the numbers of the sections or paragraphs 
that are unclearly written, which sections or sentences are too long, 
the sections where you feel lists or tables would be useful, etc.

Required Determinations

Executive Orders 12866 and 13563 (Regulatory Planning and Review)

    Executive Order 12866 provides that the Office of Information and 
Regulatory Affairs in the Office of Management and Budget will review 
all significant rules. The Office of Information and Regulatory Affairs 
has determined that this rule is not significant.
    Executive Order 13563 reaffirms the principles of E.O. 12866 while 
calling for improvements in the nation's regulatory system to promote 
predictability, to reduce uncertainty, and to use the best, most 
innovative, and least burdensome tools for achieving regulatory ends. 
The executive order directs agencies to consider regulatory approaches 
that reduce burdens and maintain flexibility and freedom of choice for 
the public where these approaches are relevant, feasible, and 
consistent with regulatory objectives. E.O. 13563 emphasizes further 
that regulations must be based on the best available science and that 
the rulemaking process must allow for public participation and an open 
exchange of ideas. We have developed this interim rule in a manner 
consistent with these requirements.

Regulatory Flexibility Act (5 U.S.C. 601 et seq.)

    The Regulatory Flexibility Act (RFA) requires an agency to prepare 
a regulatory flexibility analysis for rules unless the agency certifies 
that the rule will not have a significant economic impact on a 
substantial number of small entities. The RFA applies only to rules for 
which an agency is required to first publish a proposed rule. See 5 
U.S.C. 603(a) and 604(a). The Inflation Adjustment Act requires 
agencies to adjust civil penalties with an initial catch up adjustment 
through an interim rule. An interim rule does not include first 
publishing a proposed rule. Thus, the RFA does not apply to this rule.

Small Business Regulatory Enforcement Fairness Act (5 U.S.C. 804(2))

    This interim rule is not a major rule under 5 U.S.C. 804(2), the 
Small Business Regulatory Enforcement Fairness Act. This rule:
    (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 the ability of 
U.S.-based enterprises to compete with foreign-based enterprises.

Unfunded Mandates Reform Act (2 U.S.C. 1501 et seq.)

    Under the Unfunded Mandates Reform Act (2 U.S.C. 1501 et seq.), 
this interim rule will not ``significantly or uniquely'' affect small 
governments.
    a. This interim rule will not significantly or uniquely affect 
small governments. A Small Government Agency Plan is not required.
    We are the lead agency for enforcing numerous conservation acts and 
executive orders, for regulating wildlife trade through the declaration 
process, for issuing permits to conduct activities affecting wildlife 
and their habitats, and for carrying out U.S. obligations under the 
Convention on International Trade in Endangered Species of Wild Fauna 
and Flora (CITES). No small government assistance or impact is expected 
as a result of this interim rule.
    b. This interim rule will not produce a Federal requirement that 
may result in the combined expenditure by State, local, or tribal 
governments of $100 million or greater in any year, so it is not a 
``significant regulatory action'' under the Unfunded Mandates Reform 
Act.
    This interim rule will not result in any combined expenditure by 
State, local, or tribal governments.

Executive Order 12630 (Takings)

    Under Executive Order 12630, this interim rule does not have 
significant takings implications. Under Executive Order 12630, this 
interim rule does not affect any constitutionally protected property 
rights. This interim rule has no private property takings implications 
as defined in Executive Order 12630. This executive order specifically 
exempts civil procedures for violations of law.

Executive Order 13132 (Federalism)

    Under Executive Order 13132, this interim rule does not have 
significant Federalism effects. A federalism summary impact statement 
is not required. This interim rule will not have a substantial direct 
effect on the States, on the relationship between the Federal 
government and the States, or on the distribution of power and 
responsibilities among the various levels of government.

Executive Order 12988 (Civil Justice Reform)

    Under Executive Order 12988, the Department of the Interior has 
determined that this interim rule does not overly burden the judicial 
system and meets the requirements of sections 3(a) and 3(b)(2) of the 
Order. The purpose of this interim rule is to adjust for inflation the 
statutory civil monetary penalties that may be assessed for violations 
of Service-administered statutes and their implementing regulations. 
Specifically, this interim rule has been reviewed to eliminate errors 
and ensure clarity, has been written to minimize lawsuits, provides a 
clear legal standard for affected actions, and specifies in clear 
language the effect on existing Federal law or regulation.

Paperwork Reduction Act of 1995 (44 U.S.C. 3501 et seq.)

    This interim rule does not contain any information collection 
requirements that require approval by the Office of Management and 
Budget (OMB) under the Paperwork Reduction Act. We may not conduct or 
sponsor, and a person is not required to respond to, a collection of 
information unless it displays a currently valid OMB control number.

National Environmental Policy Act (42 U.S.C. 4321 et seq.)

    This interim rule has been analyzed under the criteria of the 
National Environmental Policy Act (NEPA) and part 516, chapter 8 of the 
Departmental Manual (DM) (516 DM 8). This interim rule does not amount 
to a major Federal action significantly affecting the quality of the 
human environment. Neither an environmental impact statement nor an 
environmental assessment is required. This interim rule is 
categorically excluded from further NEPA requirements, under 43 CFR 
46.210. This categorical exclusion addresses policies, directives, 
regulations, and guidelines that are of an administrative, financial, 
legal, technical, or procedural

[[Page 41865]]

nature and whose environmental effects are too broad, speculative, or 
conjectural to lend themselves to meaningful analysis under NEPA.

Executive Order 13175 (Tribal Consultation) and 512 DM 2 (Government-
to-Government Relationship With Tribes)

    The Department of the Interior strives to strengthen its 
government-to-government relationship with Indian tribes through a 
commitment to consultation with Indian tribes and recognition of their 
right to self-governance and tribal sovereignty. Under the President's 
memorandum of April 29, 1994, ``Government-to-Government Relations with 
Native American Tribal Governments'' (59 FR 22951), Executive Order 
13175, and 512 DM 2, we have evaluated possible effects on federally 
recognized Indian tribes and have determined that there are no adverse 
effects. For violations of certain laws and regulations enforced by the 
Service, individual tribal members are subject to the same civil 
procedures as other individuals.

Executive Order 13211 (Energy Supply, Distribution, or Use)

    On May 18, 2001, the President issued Executive Order 13211 on 
regulations that significantly affect energy supply, distribution, or 
use. Executive Order 13211 requires agencies to prepare Statements of 
Energy Effects when undertaking certain actions. This interim rule 
applies only to U.S. Government civil procedures, it is not a 
significant regulatory action under Executive Order 12866, and it is 
not expected to significantly affect energy supplies, distribution, or 
use. Therefore, this action is not a significant energy action, and no 
Statement of Energy Effects is required.

Administrative Procedure Act

    The Inflation Adjustment Act requires Federal agencies to publish 
interim rules by July 1, 2016, with an effective date for the adjusted 
penalties no later than August 1, 2016. To comply with the Inflation 
Adjustment Act, we are issuing these regulations as an interim rule and 
are requesting comments after publication. Section 553(b) of the 
Administrative Procedure Act (APA) provides that, when an agency for 
good cause finds that notice and public procedure are impracticable, 
unnecessary, or contrary to the public interest, the agency may issue a 
rule without providing notice and an opportunity for prior public 
comment. The Service finds that there is good cause to issue this 
interim rule without first providing for public comment. It would not 
be possible to meet the deadlines imposed by the Inflation Adjustment 
Act if we were to first publish a proposed rule, allow the public 
sufficient time to submit comments, analyze the comments, and publish a 
final rule. The Service is issuing this interim rule to implement the 
statutory directive in the Inflation Adjustment Act, which requires 
agencies to publish an interim rule and to update the civil penalty 
amounts by applying a specified formula. The Service has no discretion 
to vary the amount of the adjustment to reflect any views or 
suggestions provided by commenters. Accordingly, it would serve no 
purpose to provide an opportunity for public comment prior to 
publication of this rule. Thus, pre-publication notice and public 
comment is impracticable and unnecessary. This rule will also update 
the address for the Office of Hearings and Appeals in sections 11.15, 
11.25, and 11.26. Since these updates are merely ministerial, we find 
that pre-publication notice and public comment with respect to those 
revisions is unnecessary.

List of Subjects in 50 CFR Part 11

    Administrative practice and procedure, Exports, Fish, Imports, 
Penalties, Plants, Transportation, Wildlife.

Regulation Promulgation

    For the reasons described above, we amend part 11, subchapter B of 
chapter I, title 50 of the Code of Federal Regulations as set forth 
below.

PART 11--CIVIL PROCEDURES

0
1. The authority citation for part 11 is revised to read as follows:

    Authority:  16 U.S.C. 470aa-470mm, 470aaa-470aaa-11, 668-668d, 
1361-1384, 1401-1407, 1531-1544, 3371-3378, 4201-4245, 4901-4916, 
5201-5207, 5301-5306; 18 U.S.C. 42-43; 25 U.S.C. 3001-3013; and Sec. 
107, Pub. L. 114-74, 129 Stat. 599, unless otherwise noted.


0
2. Revise Sec.  11.2 to read as follows:


Sec.  11.2  Scope of regulations.

    The regulations contained in this part apply only to actions 
arising under the following laws and regulations issued thereunder:
    (a) Lacey Act, 18 U.S.C. 42-43;
    (b) Lacey Act Amendments of 1981, 16 U.S.C. 3371 et seq.;
    (c) Bald and Golden Eagle Protection Act, 16 U.S.C. 668-668d;
    (d) Endangered Species Act of 1973, 16 U.S.C. 1531 et seq.;
    (e) Marine Mammal Protection Act of 1972, 16 U.S.C. 1361 et seq.;
    (f) African Elephant Conservation Act, 16 U.S.C. 4201 et seq.;
    (g) Rhinoceros and Tiger Conservation Act, 16 U.S.C. 5301 et seq.;
    (h) Archaeological Resources Protection Act, 16 U.S.C. 470aa et 
seq.;
    (i) Paleontological Resources Protection Act, 16 U.S.C. 470aaa et 
seq.;
    (j) The Native American Graves Protection and Repatriation Act, 25 
U.S.C. 3001 et seq.;
    (k) Recreational Hunting Safety Act of 1994, 16 U.S.C. 5201 et 
seq.; and
    (l) Wild Bird Conservation Act, 16 U.S.C. 4901 et seq.


0
3. Revise Sec.  11.15 to read as follows:


Sec.  11.15  Request for a hearing.

    Except where a right to request a hearing is deemed to have been 
waived as provided in Sec.  11.11, the respondent may, within 45 
calendar days from the date of the notice of assessment referred to in 
Sec.  11.14, file a dated, written request for a hearing with the 
Departmental Cases Hearings Division, Office of Hearings and Appeals, 
U.S. Department of the Interior, 351 South West Temple, Suite 6.300, 
Salt Lake City, Utah 84101.


0
4. Amend Sec.  11.25 by revising paragraph (a) to read as follows:


Sec.  11.25  Appeal.

    (a) Either the respondent or the Director may seek an appeal from 
the decision of an administrative law judge rendered subsequent to 
January 1, 1974, by the filing of a ``Notice of Request for Appeal'' 
with the Director, Office of Hearings and Appeals, U.S. Department of 
the Interior, 351 South West Temple, Suite 6.300, Salt Lake City, Utah 
84101, within 30 calendar days of the date of the administrative law 
judge's decision. Such notice shall be accompanied by proof of service 
on the administrative law judge and the opposing party.
* * * * *

0
5. Revise Sec.  11.26 to read as follows:


Sec.  11.26  Reporting service.

    Copies of decisions in civil penalty proceedings instituted under 
statutes referred to in subpart A of this part and rendered subsequent 
to June 3, 1970, may be obtained by letter of request addressed to the 
Director, Office of Hearings and Appeals, U.S. Department of the 
Interior, 351 South West Temple, Suite 6.300, Salt Lake City, Utah 
84101. Fees for this service shall be as established by the Director of 
that Office.

0
6. Add a new subpart D to part 11 to read as follows:

[[Page 41866]]

Subpart D--Civil Monetary Penalty Inflation Adjustments
Sec.
11.31 Definitions.
11.32 Purpose and scope.
11.33 Adjustments to penalties.
11.34 Subsequent adjustments.

Subpart D--Civil Monetary Penalty Inflation Adjustments


Sec.  11.31  Definitions.

    (a) Civil monetary penalty means any penalty, fine, or other 
sanction that:
    (1)(i) Is for a specific monetary amount as provided by Federal 
law; or
    (ii) Has a maximum amount provided for by Federal law;
    (2) Is assessed or enforced by an agency pursuant to Federal law; 
and
    (3) Is assessed or enforced pursuant to an administrative 
proceeding or a civil action in the Federal courts.
    (b) Inflation Adjustment Act means the Federal Civil Penalties 
Inflation Adjustment Act Improvements Act of 2015 (Pub. L. 114-74, 
November 2, 2015, 129 Stat. 584, 28 U.S.C. 2461 note).


Sec.  11.32  Purpose and scope.

    The purpose of this part is to make the inflation adjustment, 
described in and required by the Inflation Adjustment Act, of each 
civil monetary penalty provided by law within the jurisdiction of the 
U.S. Fish and Wildlife Service.


Sec.  11.33  Adjustments to penalties.

    The civil monetary penalties provided by law within the 
jurisdiction of the U.S. Fish and Wildlife Service are adjusted as 
follows:

----------------------------------------------------------------------------------------------------------------
                                                                                                   Maximum civil
                Law                                Citation                   Type of violation      monetary
                                                                                                      penalty
----------------------------------------------------------------------------------------------------------------
(a) African Elephant Conservation   16 U.S.C. 4224(b).....................  Any violation.......          $9,893
 Act.
(b) Bald and Golden Eagle           16 U.S.C. 668(b)......................  Any violation.......          12,500
 Protection Act.
(c) Endangered Species Act of 1973  16 U.S.C. 1540(a)(1)..................  (1) Knowing                   49,467
                                                                             violation of
                                                                             section 1538.
                                                                            (2) Other knowing             23,744
                                                                             violation.
                                                                            (3) Any other                  1,250
                                                                             violation.
(d) Lacey Act Amendments of 1981..  16 U.S.C. 3373(a).....................  (1) Violations                25,000
                                                                             referred to in 16
                                                                             U.S.C. 3373(a)(1).
                                                                            (2) Violations                   625
                                                                             referred to in 16
                                                                             U.S.C. 3373(a)(2).
(e) Marine Mammal Protection Act    16 U.S.C. 1375........................  Any violation.......          25,000
 of 1972.
(f) Recreational Hunting Safety     16 U.S.C. 5202(b).....................  (1) Violation                 15,909
 Act of 1994.                                                                involving use of
                                                                             force or violence
                                                                             or threatened use
                                                                             of force or
                                                                             violence.
                                                                            (2) Any other                  7,954
                                                                             violation.
(g) Rhinoceros and Tiger            16 U.S.C. 5305a(b)(2).................  Any violation.......          17,403
 Conservation Act of 1998.
(h) Wild Bird Conservation Act....  16 U.S.C. 4912(a)(1)..................  (1) Violation of              41,932
                                                                             section 4910(a)(1),
                                                                             section 4910(a)(2),
                                                                             or any permit
                                                                             issued under
                                                                             section 4911.
                                                                            (2) Violation of              20,127
                                                                             section 4910(a)(3).
                                                                            (3) Any other                    839
                                                                             violation.
----------------------------------------------------------------------------------------------------------------

Sec.  11.34  Subsequent adjustments.

    The Secretary of the Interior or his or her designee will, every 
year after August 1, 2016, make the inflation adjustment described in 
and required by the Inflation Adjustment Act of each civil monetary 
penalty provided by law and within the jurisdiction of the U.S. Fish 
and Wildlife Service. Each annual adjustment will be reflected in the 
table in Sec.  11.33.

    Dated: June 21, 2016.
 Michael J. Bean,
Assistant Secretary for Fish and Wildlife and Parks.
[FR Doc. 2016-15268 Filed 6-27-16; 8:45 am]
 BILLING CODE 4333-15-P