[Federal Register Volume 86, Number 223 (Tuesday, November 23, 2021)]
[Proposed Rules]
[Pages 66491-66495]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2021-25401]


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DEPARTMENT OF THE INTERIOR

25 CFR Part 1000

[222A2100DD/AAKC001030/A0A501010.999900 253G]


Self-Governance PROGRESS Act Negotiated Rulemaking Committee 
Establishment; Proposed Membership

AGENCY: Office of the Assistant Secretary--Indian Affairs, Interior.

ACTION: Proposed membership of Committee, notification of intent to 
establish committee, and nominations.

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SUMMARY: The U.S. Department of the Interior (DOI) is announcing the 
proposed members to form the Self-Governance PROGRESS Act Negotiated 
Rulemaking Committee (Committee). The Committee will advise the 
Secretary of the Interior (Secretary) on a proposed rule to implement 
the Practical Reforms and Other Goals To Reinforce the Effectiveness of 
Self-Governance and Self-Determination for Indian Tribes Act of 2019 
(PROGRESS Act) to revise the regulations on Tribal Self-Governance 
Annual Funding Agreements Under the Tribal Self-Governance Act 
Amendments to the Indian Self-Determination and Education Act. This 
document solicits comments on the proposed membership and the proposal 
to establish the Committee and invites additional nominations for 
Committee members who will adequately represent the interests that are 
likely to be significantly affected by the proposed rule. The Secretary 
also proposes to appoint Federal representatives to the Committee as 
listed.

DATES: Comments must be submitted no later than December 23, 2021.

ADDRESSES: Send comments and nominations to the Designated Federal 
Officer, Vickie Hanvey, by any of the following methods:

[[Page 66492]]

     (Preferred method) Email to: [email protected];
     Mail, hand-carry or use an overnight courier service to 
the Designated Federal Officer, Ms. Vickie Hanvey, Office of the 
Assistant Secretary--Indian Affairs, 1849 C Street NW, Mail Stop 4660, 
Washington, DC 20240.

FOR FURTHER INFORMATION CONTACT: The Designated Federal Officer, Ms. 
Vickie Hanvey, Program Policy Analyst, Office of Self-Governance, 
Office of the Assistant Secretary--Indian Affairs; telephone: (918) 
931-0745; email: [email protected].

SUPPLEMENTARY INFORMATION:

I. Background

    On October 21, 2020, the PROGRESS Act was signed into law and 
amends subchapter I of the Indian Self-Determination and Education 
Assistance Act (ISDEAA), 25 U.S.C. 5301 et seq., which addresses Indian 
Self-Determination, and subchapter IV of the ISDEAA, which addresses 
DOI's Tribal Self-Governance Program. The PROGRESS Act calls for a 
negotiated rulemaking committee to be established under 5 U.S.C. 565, 
with membership consisting only of representatives of Federal and 
Tribal governments, with the Office of Self-Governance serving as the 
lead agency for the DOI. The PROGRESS Act also authorizes the Secretary 
to adapt negotiated rulemaking procedures to the unique context of the 
self-governance relationship between the United States and Indian 
Tribes. The purpose of the Committee is to serve as an advisory 
committee under the Federal Advisory Committee Act (FACA) and the 
Negotiated Rulemaking Act (NRA). The Committee will use a negotiated 
rulemaking process to develop regulations for implementation of the 
PROGRESS Act to amend, delete, and add provisions to the existing 
regulations at 25 CFR part 1000, Annual Funding Agreements Under the 
Tribal Self-Government Act Amendments to the Indian Self-Determination 
and Education Act, which addresses Tribal Self-Governance compacts.

II. Proposed Work of the Committee

    The objectives of the Committee are to represent the interests that 
will be significantly affected by the final regulations, negotiate in 
good faith, and reach consensus, where possible, on recommendations to 
the Secretary for the proposed regulations.
    The Committee will be charged, consistent with subchapter IV 
regarding the Tribal Self-Governance Program, with developing proposed 
regulations to implement the PROGRESS Act's provisions regarding the 
DOI's Self-Governance Program. The proposed regulations will be 
considered by the Secretary and subject to government-to-government 
consultation.
    The Committee will be expected to meet approximately 3-5 times and 
each meeting is expected to last multiple hours for a consecutive 2-3 
days each. The initial meeting will be held by teleconference and/or 
web conference; later meetings may be held either virtually or in 
person. The Committee's work is expected to occur over the course of 6-
12 months, and it is the Secretary's intent to publish the proposed 
rule for notice and comment by 2022 (within 18 months of the 
anticipated date of the Committee's establishment). However, the 
Committee may continue its work for up to two years. The Office of 
Self-Governance has dedicated resources required to: ensure the 
Committee is able to conduct meetings, provide technical assistance, 
and provide any additional support required to fulfill the Committee's 
responsibilities.

III. Proposed Tribal Committee Members

    On February 1, 2021, the Office of Assistant Secretary--Indian 
Affairs (AS-IA) published a Federal Register notice of intent (86 FR 
7656) requesting comments and nominations for Tribal representatives 
for the Committee. The comment period for that notice of intent closed 
March 3, 2021.
    Within the notice, AS-IA solicited comments on the proposal to 
establish the Committee, including comments on any additional interests 
not identified. AS-IA solicited nominations from Indian Tribes and 
Tribal organizations as defined in section 4(I) of the Indian Self-
Determination and Education Assistance Act that are currently 
participating in the Tribal Self-Governance Program and those that are 
not currently participating in, but are interested in participating in, 
the Tribal Self-Governance Program and who would be affected by the 
final rule. AS-IA requested that these Tribes and Tribal organizations 
nominate representatives to serve on the Committee.
    The Secretary has selected 14 Tribal representatives (7 Primary, 7 
Alternate) for the Committee and 12 Federal representatives (6 Primary, 
6 Alternate) for the Committee, for a proposed total of 26 members (13 
Primary, 13 Alternate). Primary representatives are voting members. 
Both primary and alternate representatives are expected to attend all 
meetings. Alternate representatives are to remain abreast of 
discussions and to be prepared to vote in the event the Primary is 
unavailable. The Designated Federal Officer (DFO) and Alternate DFO are 
considered non-members of the Committee. The proposed Committee was 
selected based upon nominations submitted through the process 
identified in the Federal Register (85 FR 7656) dated February 1, 2021, 
under the ``Nominations'' section. The Secretary did not consider 
nominations that were received in any other manner or were received 
after the deadline.
    The Secretary proposes the following 14 Tribal representatives for 
the Committee:

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       Proposed committee member                   Affiliation
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W. Ron Allen, Chairman/CEO.............  Jamestown S'Klallam Tribe.
Melanie Benjamin, Chief Executive......  Mille Lacs Band of Ojibwe.
Richard Peterson, President............  Central Council Tlingit and
                                          Haida Indian Tribes of Alaska.
Michael Dolson, Councilman.............  The Confederated Salish and
                                          Kootenai Tribes of the
                                          Flathead Nation.
Melanie Fourkiller, Director of Self-    Choctaw Nation of Oklahoma.
 Governance.
Russel (Buster) Attebery, Chairman.....  Karuk Tribe.
Karen Fierro, Self-Governance Director.  Ak-Chin Indian Community.
------------------------------------------------------------------------

    The Secretary proposes the following alternate Tribal 
representatives for the Committee:

[[Page 66493]]



------------------------------------------------------------------------
  Proposed alternate committee member              Affiliation
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Sandra Sampson, Board Treasurer........  Confederated Tribes of the
                                          Umatilla Indian Reservation.
Jennifer Webster, Councilwoman.........  Oneida Nation.
Gerry Hope, Transportation Director,     Sitka Tribe of Alaska.
 Former Tribal Leader.
Jody LaMere, Councilwoman..............  Chippewa Cree Tribe of the
                                          Rocky Boy's Reservation.
Jacklyn King, Secretary................  Sac and Fox Nation.
Will Micklin, Second Vice President....  Central Council Tlingit and
                                          Haida Indian Tribes of Alaska.
Annette Bryan, Council Member..........  Puyallup Tribe of Indians.
------------------------------------------------------------------------

IV. Proposed Federal Committee Members

    The Designated Federal Officer for the Committee will be Ms. Vickie 
Hanvey, Office of Self-Governance. The Secretary proposes the following 
12 Federal representatives for the Committee:

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                  Name                             Affiliation
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Sharee Freeman, Director...............  Office of Self-Governance,
                                          Assistant Secretary--Indian
                                          Affairs.
Bryan Shade, Attorney-Advisor..........  Branch of Self-Governance and
                                          Economic Development, Office
                                          of the Solicitor.
Vicki Cook, Native American and          Bureau of Reclamation.
 International Affairs Office.
Bryon Loosle, Division Chief...........  National Conservation Lands,
                                          Bureau of Land and Minerals
                                          Management.
Scott Aikin, National Native American    U.S. Fish and Wildlife Service
 Programs Coordinator.                    Head Quarters.
Rose Petoskey, Senior Counselor to the   Office of the Assistant
 Assistant Secretary--Indian Affairs.     Secretary--Indian Affairs.
------------------------------------------------------------------------

    The Secretary proposes the following alternate Federal 
representatives for the Committee:

------------------------------------------------------------------------
                  Name                             Affiliation
------------------------------------------------------------------------
Matt Kallappa, Northwest Field Office    Office of Self-Governance,
 Manager.                                 Assistant Secretary--Indian
                                          Affairs.
Jody Schwarz, Attorney-Advisor.........  Branch of Self-Governance and
                                          Economic Development, Office
                                          of the Solicitor.
Kelly Titensor, Native American Affairs  Bureau of Reclamation.
 Advisor.
C. Dave Johnson, Tribal Liaison........  Bureau of Land and Minerals
                                          Management.
Dorothy FireCloud, Native American       National Park Service.
 Affairs Liaison.
Samuel Kohn, Senior Counselor to the     Office of the Assistant
 Assistant Secretary--Indian Affairs.     Secretary--Indian Affairs.
------------------------------------------------------------------------

V. Comments

    The Secretary solicited comments on the proposal to establish the 
Committee and received seven written responses submitted through the 
process identified in the Federal Register (86 FR 7656) dated February 
1, 2021. The Secretary did not consider comments that were received in 
any other manner or were received after the close of the comment 
period. The written comments were received from the Tribal Self-
Governance Title IV Task Force and the following six Tribes: (1) 
Choctaw Nation of Oklahoma, (2) Central Council Tlingit and Haida 
Indian Tribes of Alaska, (3) Squaxin Island Tribe, (4) Jamestown 
S'Klallam Tribe, (5) Muscogee (Creek) Nation, and (6) Sac and Fox 
Nation.
    The Task Force and all Tribal commenters except one indicated the 
Committee should be exempt from the Federal Advisory Committee Act 
(FACA) based on the following: Members are either elected officials, or 
employees with designated authority from an elected official to act on 
their behalf, and so the Committee should be exempt from FACA under the 
intergovernmental exemption in the Unfunded Mandates Reform Act (UMRA).
    Response: The Unfunded Mandates Reform Act (UMRA) excepts certain 
committees from compliance with FACA if the committee satisfies two 
requirements. First, meetings between Federal and Tribal governments 
must be held exclusively between Federal officials and elected officers 
of State, local, and Tribal governments (or their representatives 
acting in their official capacities. Second, the meetings must be 
solely for the purpose of exchanging views, information or advice 
relating to the management or implementation of Federal programs 
established pursuant to public law that explicitly or inherently share 
intergovernmental responsibilities or administration. See 2 U.S.C. 
154(b). The Self-Governance PROGRESS Act Negotiated Rulemaking 
Committee meets the first requirement but not the second. The Committee 
is convened to negotiate and promulgate regulations to carry out 
relevant provisions of the PROGRESS Act, not simply to exchange views, 
information, or advice on the management or implementation of federal 
programs. Accordingly, this Committee cannot be exempted from FACA 
under UMRA.
    All Tribal commenters and the Task Force indicated support for 
using an independent facilitation and six specifically support using 
the services of the Federal Conciliation and Mediation Service (FMCS).
    Response: Under 5 U.S.C. 565(c), DOI may nominate either a person 
from the Federal Government or a person from outside the Federal 
Government to serve as a facilitator for the negotiations of the 
Committee, subject to the approval of

[[Page 66494]]

the Committee by consensus. DOI will consider the nomination of FMCS as 
a facilitation team.
    The Task Force and several of the Tribal commenters indicated: (1) 
Section IV of the notice was unclear about the nomination of primary 
and alternative representatives creating confusion if a Tribe should 
submit a primary and alternate, each region submit a primary and 
alternate, or each nomination should specify where it is for the 
primary or alternate representative; (2) the notice indicates Committee 
members must be able to attend all meetings but then states an 
alternate who can fulfill the obligations of membership should the 
primary be unable to attend; (3) selection of Committee members 
surrounds the use of the terms representation of Tribes with a 
geographic balance; (4) the deadline was confusing and it seemed 
contradictory to establish a hard deadline but then state you will 
accept additional nominations after the deadline passes.
    Response: (1) A Tribe or Tribal Organization may submit either a 
primary or alternate representative or both. (2) Primary and alternate 
candidates will both be expected to attend all meetings. Primary 
representatives are voting members. Alternate representatives are 
expected to attend all meetings to remain abreast of discussions and to 
be prepared to vote in the event the primary is unavailable. (3) 
Proposed committee membership was based upon elected Tribal leadership 
or Tribal official, Tribal size, balanced geographical representation 
(by geographic region, state, or other geographical determination) (4) 
Section VI. Nominations of this document clarifies that additional 
nominations may be offered after proposed committee membership has been 
published.
    The Task Force and two Tribal commenters indicated: (1) Travel and 
per diem provisions were hard to decipher and, in some instances, 
seemed contradictory; (2) the notice is unclear with respect to who is 
responsible for travel expense; (3) provide travel support to all 
Tribal representatives without evidence of financial resources.
    Response: The Negotiated Rulemaking Act section 568(c) states that 
members of a negotiated rulemaking committee shall be responsible for 
their own expenses of participation in such committee, except that an 
agency may, in accordance with section 7(d) of the Federal Advisory 
Committee Act, pay for a member's reasonable travel and per diem 
expenses, expenses to obtain technical assistance, and a reasonable 
rate of compensation, if:
    (1) Such member certifies a lack of adequate financial resources to 
participate in the committee; and
    (2) the agency determines that such member's participation in the 
committee is necessary to assure an adequate representation of the 
member's interest.
    The DOI will follow the statutory requirements within the 
Negotiated Rulemaking Act as well as the Federal Advisory Committee Act 
referenced above. The DOI will provide travel and per diem expenses for 
the Committee as funding allows.
    One Tribal commenter requested clarification on: (1) Next steps for 
submitting nominations on first Federal Register notice; (2) submitting 
nominations through a second Federal Register notice and the deadline; 
(3) inaugural meeting of the Committee.
    Response: (1) Nominations submitted through the process identified 
in the Federal Register (85 FR 7656) dated February 1, 2021, under the 
``Nominations'' section closed on March 3, 2021. (2) Section VI 
Nominations of this document allows for additional nominations to be 
considered for this Committee. (3) After considering comments and 
nominations for Tribal representatives, the DOI will publish a Federal 
Register Notice of Establishment and will indicate the proposed meeting 
schedule.

VI. Nominations

    If you are an Indian Tribe or Tribal organization as defined in 
section 4(I) of the Indian Self-Determination and Education Assistance 
Act that is currently participating in the Tribal Self-Governance 
Program or that is not currently participating in, but is interested in 
participating in Tribal Self-Governance Program, we invite you to 
comment on the proposed nominations in this document. If there is no 
adequate representation of those interests that will be significantly 
affected by a proposed rule, we invite you to nominate other persons 
for membership on the Committee. The Committee membership should 
reflect the diversity of Tribal interests, and nominees should only be 
of representatives and alternates who:
     Are elected officials of Tribal governments (or their 
designated employees with authority to act on their behalf) acting in 
their official capacities; and
     Will be able to:
    [cir] Represent one or more of the specified interests with the 
authority to embody the views of that interest, communicate with 
interested constituents, and have a clear means to reach agreement on 
behalf of the interest(s);
    [cir] Coordinate, to the extent possible, with other interests who 
may not be represented on the Committee;
    [cir] Negotiate effectively on behalf of the interest(s) 
represented;
    [cir] Commit to time and effort required to attend and prepare for 
meetings; and
    [cir] Collaborate among diverse parties in a consensus-seeking 
process.
    The Secretary will consider nominations for representatives only if 
they are nominated through the process identified in this notification 
of intent and in the Federal Register notice of intent at 86 FR 7656. 
The Secretary will not consider any nominations received in any other 
manner. The Secretary will not consider nominations for Federal 
representatives; only the Secretary may nominate Federal employees to 
the Committee.
    Nominations must include the following information about each 
nominee:
    (1) A current letter from the governing body or chairperson of the 
Tribe representing one of the interest(s) identified supporting the 
nomination of the individual to serve as a representative for the Tribe 
on the Committee;
    (2) A resume reflecting the nominee's qualifications and 
experience, to include the nominee's name, Tribal affiliation, job 
title, major job duties, employer, business address, business telephone 
and fax numbers (and business email address, if applicable);
    (3) The interest(s) to be represented by the nominee (identified in 
this document) and whether the nominee will represent other interest(s) 
related to this rulemaking; and
    (4) A brief description of how the nominee will represent the views 
of the identified interest(s), communicate with constituents, and have 
a clear means to reach agreement on behalf of the interest(s) they are 
representing; and
    (5) A statement on whether the nominee is only representing one 
interest or whether the expectation is that the nominee represents a 
specific group of interests.
    To be considered, nominations must be received by the close of 
business on the date listed in the DATES section, at the location 
indicated in the ADDRESSES section.

VII. Public Disclosure of Comments

    Before including your address, phone number, email address, or 
other personal identifying information in your comment, you should be 
aware that

[[Page 66495]]

your entire nomination submission--including your personal identifying 
information--may be made publicly available at any time. While you can 
ask us in your submission to withhold your personal identifying 
information from public review, we cannot guarantee that we will be 
able to do so.

VIII. Authority

    The Practical Reforms and Other Goals To Reinforce the 
Effectiveness of Self-Governance and Self-Determination for Indian 
Tribes Act of 2019 (PROGRESS Act), Public Law 116-180 dated October 21, 
2020.

Bryan Newland,
Assistant Secretary--Indian Affairs.
[FR Doc. 2021-25401 Filed 11-22-21; 8:45 am]
BILLING CODE 4337-15-P