[Federal Register Volume 90, Number 105 (Tuesday, June 3, 2025)]
[Rules and Regulations]
[Pages 23439-23443]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2025-10064]
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DEPARTMENT OF THE INTERIOR
Office of Surface Mining Reclamation and Enforcement
30 CFR Parts 723, 724, 845, and 846
RIN 1029-AC87
[Docket ID: OSM 2025-0001; S1D1S SS08011000 SX064A000 256S180110;
S2D2SSS08011000 SX064A00 25XS501520]
Civil Monetary Penalty Inflation Adjustments
AGENCY: Office of Surface Mining Reclamation and Enforcement, Interior.
ACTION: Final rule.
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SUMMARY: The Office of Surface Mining Reclamation and Enforcement
(OSMRE) adjusts for inflation its civil monetary penalties assessed
under the Surface Mining Control and Reclamation Act of 1977 (SMCRA)
and its implementing regulations. OSMRE takes this regulatory action
pursuant to the Federal Civil Penalties Inflation Adjustment Act
Improvements Act of 2015 (2015 Act), which further amended the Federal
Civil Penalties Inflation Adjustment Act of 1990 (1990 Act), and Office
of Management and Budget guidance.
DATES: Effective June 3, 2025.
FOR FURTHER INFORMATION CONTACT: Khalia A. Green, Office of Surface
Mining Reclamation and Enforcement, 1849 C Street NW, Mail Stop 4558,
Washington, DC 20240; Telephone (202) 208-2823. Email:
[email protected].
SUPPLEMENTARY INFORMATION:
Table of Contents
I. Background
A. The Federal Civil Penalties Inflation Adjustment Act
Improvements Act of 2015
B. Calculation of Adjustments
C. Effect of the Rule in Federal Program States and on Indian
Lands
D. Effect of the Rule on Approved State Programs
II. Procedural Matters
A. Regulatory Planning and Review (Executive Orders 12866 and
13563)
B. Regulatory Flexibility Act
C. Congressional Review Act
D. Unfunded Mandates Reform Act
E. Takings (Executive Order 12630)
[[Page 23440]]
F. Federalism (Executive Order 13132)
G. Civil Justice Reform (Executive Order 12988)
H. Consultation With Indian Tribes (Executive Order 13175 and
Departmental Policy)
I. Paperwork Reduction Act
J. National Environmental Policy Act
K. Effects on Energy Supply, Distribution, and Use (Executive
Order 13211)
L. Administrative Procedure Act
I. Background
A. The Federal Civil Penalties Inflation Adjustment Act Improvements
Act of 2015
Section 518 of SMCRA, 30 U.S.C. 1268, authorizes the Secretary of
the Interior to assess civil monetary penalties (CMPs) for violations
of SMCRA. The Federal regulations implementing the CMP provisions of
section 518 are located in 30 CFR parts 723, 724, 845, and 846. The
Department of the Interior, through the Office of Surface Mining
Reclamation and Enforcement (OSMRE), is adjusting CMPs in six sections:
30 CFR 723.14, 723.15, 724.14, 845.14, 845.15, and 846.14.
On November 2, 2015, the President signed the 2015 Act into law
(Sec. 701 of Pub. L. 114-74). The 2015 Act, which further amended the
1990 Act (Pub. L. 101-410), requires Federal agencies to promulgate
rules to adjust the level of CMPs to account for inflation. The 2015
Act requires agencies to publish annual inflation adjustments. These
adjustments are aimed at maintaining the deterrent effect of civil
penalties and furthering the policy goals of the statutes that
authorize the penalties.
B. Calculation of Adjustments
The Office of Management and Budget (OMB) issued guidance on the
2025 annual adjustments for inflation. See OMB Memorandum for the Heads
of Executive Departments and Agencies (M-25-02), Implementation of
Penalty Inflation Adjustments for 2025, Pursuant to the Federal Civil
Penalties Inflation Adjustment Act Improvements Act of 2015, December
17, 2024, (OMB Memorandum). The OMB Memorandum notes that the 1990 Act
defines ``civil monetary penalty'' as ``any penalty, fine, or other
sanction that . . . is for a specific monetary amount as provided by
Federal law; or . . . has a maximum amount provided for by Federal law;
and . . . is assessed or enforced by an agency pursuant to Federal law;
and . . . is assessed or enforced pursuant to an administrative
proceeding or a civil action in the Federal courts. . . .'' Id. at 2-3.
It further instructs that agencies ``are to adjust `the maximum civil
monetary penalty or the range of minimum and maximum civil monetary
penalties, as applicable, for each civil monetary penalty by the cost-
of-living adjustment.' '' Id. at 3.
The 1990 Act, as amended by the 2015 Act, and the OMB Memorandum
specify that the annual inflation adjustments are based on the percent
change between the Consumer Price Index for all Urban Consumers (the
CPI-U) published by the Department of Labor for the month of October in
the year of the previous adjustment and the October CPI-U for the
preceding year. The recent OMB Memorandum specified that the cost-of-
living adjustment multiplier for 2025, not seasonally adjusted, is
1.02598. Id. at 2.
OSMRE used this guidance to identify applicable CMPs and calculate
the required inflation adjustments. The 1990 Act, as amended by the
2015 Act, specifies that any resulting increases in CMPs must be
rounded to the nearest multiple of one dollar and that the increased
CMPs apply only to CMP assessments that occur after the date that the
increases take effect.
Generally, OSMRE assigns points to a violation as described in 30
CFR 723.13 and 845.13. The CMP owed is based on the number of points
received, ranging from 1 point to 70 points. For example, under the
existing regulations in 30 CFR 845.14, a violation totaling 70 points
would amount to a $20,457 CMP. To adjust this amount, OSMRE multiplied
$20,457 by the 2025 inflation factor of 1.02598, resulting in a raw
adjusted amount of $20,988.47. Because the 2015 Act requires rounding
any increase in the CMP amount to the nearest dollar, in this case a
violation of 70 points would amount to a new CMP of $20,988. Pursuant
to the 2015 Act, the increases in this Final Rule apply to CMPs
assessed after the date the increases take effect, even if the
associated violation predates the applicable increase.
There are no points associated with 30 CFR 723.15(b), 724.14(b),
845.15(b), and 846.14(b) because those regulatory provisions do not set
forth numbers of points, only dollar amounts.
C. Effect of the Rule in Federal Program States and on Indian Lands
OSMRE directly regulates surface coal mining and reclamation
operations within a State or on Indian lands if the State or Tribe does
not obtain its own approved program pursuant to sections 503 or 710(j)
of SMCRA, 30 U.S.C. 1253 or 1300(j). The increases in CMPs contained in
this rule will apply to the following Federal program States: Arizona,
California, Georgia, Idaho, Massachusetts, Michigan, North Carolina,
Oregon, Rhode Island, South Dakota, Tennessee, and Washington. The
Federal programs for those States appear at 30 CFR parts 903, 905, 910,
912, 921, 922, 933, 937, 939, 941, 942, and 947, respectively. Under 30
CFR 750.18, the increases in CMPs also apply to Indian lands under the
Federal program for Indian lands.
D. Effect of the Rule on Approved State Programs
As a result of litigation, State regulatory programs are not
required to mirror all of the penalty provisions of the Federal
regulations implementing SMCRA. See In re Permanent Surface Mining
Regul. Litig., No. 79-1144, 1980 U.S. Dist. LEXIS 17722, at *21-23
(D.D.C. Feb. 26, 1980); 1980 U.S. Dist. LEXIS 17660, at *87-88 (D.D.C.
May 16, 1980). Thus, this rule has no effect on CMPs in States with
SMCRA primacy.
II. Procedural Matters
A. Regulatory Planning and Review (Executive Orders 12866 and 13563)
Executive Order (E.O.) 12866, as reaffirmed by E.O. 13563, provides
that the Office of Information and Regulatory Affairs (OIRA) within OMB
will review all significant rules. OIRA has determined that agency
regulations exclusively implementing the annual inflation adjustments
and that are consistent with OMB Memorandum M-23-05, such as this rule,
are not significant. Because this final rule exclusively implements the
annual inflation adjustments, is consistent with the OMB Memorandum,
and will have an annual impact of less than $100 million, it is not
significant under E.O. 12866.
B. Regulatory Flexibility Act
The Regulatory Flexibility Act (RFA) requires an agency to prepare
a regulatory flexibility analysis for all 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 2015 Act requires agencies to adjust
civil penalties annually for inflation ``notwithstanding section 553
[of the Administrative Procedure Act].'' Thus, no proposed rule will be
published, and the RFA does not apply to this rulemaking.
C. Congressional Review Act
This rule is not a major rule under 5 U.S.C. 804(2), the
Congressional Review Act. This rule:
[[Page 23441]]
(a) Will 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) Will not have significant adverse effects on competition,
employment, investment, productivity, innovation, or the ability of
United States-based enterprises to compete with foreign-based
enterprises.
D. Unfunded Mandates Reform Act
This rule does not impose an unfunded mandate on State, local, or
Tribal governments, or the private sector, of more than $100 million
per year. The rule does not have a significant or unique effect on
State, local, or Tribal governments, or the private sector. A statement
containing the information required by the Unfunded Mandates Reform Act
(2 U.S.C. 1531 et seq.) is not required.
E. Takings (Executive Order 12630)
This rule does not effect a taking of private property or otherwise
have takings implications under E.O. 12630. A takings implication
assessment is not required.
F. Federalism (Executive Order 13132)
Under the criteria in section 1 of E.O. 13132, this rule does not
have sufficient federalism implications to warrant the preparation of a
federalism summary impact statement. A federalism summary impact
statement is not required.
G. Civil Justice Reform (Executive Order 12988)
This rule complies with the requirements of E.O. 12988.
Specifically, this rule:
(a) Meets the criteria of section 3(a) requiring that all
regulations be reviewed to eliminate errors and ambiguity and be
written to minimize litigation; and
(b) Meets the criteria of section 3(b)(2) requiring that all
regulations be written in clear language and contain clear legal
standards.
H. Consultation With Indian Tribes (Executive Order 13175 and
Departmental Policy)
The Department of the Interior strives to strengthen its
government-to-government relationship with Tribes through a commitment
to consultation with Tribes and recognition of their right to self-
governance and Tribal sovereignty. OSMRE has evaluated this rule under
the Department's consultation policy, under Departmental Manual part
512, chapters 4, 5, 6, and 7 and under the criteria in E.O. 13175 and
has determined that it has no substantial direct effects on Federally
recognized Tribes or Alaska Native Claims Settlement Act (ANCSA)
Corporations, and that consultation under the Department's Tribal and
ANCSA consultation policies is not required.
I. Paperwork Reduction Act
This rule does not contain information collection requirements, and
a submission to OMB under the Paperwork Reduction Act (44 U.S.C. 3501
et seq.) is not required. OSMRE may not conduct or sponsor, and you are
not required to respond to, a collection of information unless it
displays a currently valid OMB control number.
J. National Environmental Policy Act
This rule does not constitute a major Federal action under the
National Environmental Policy Act of 1969 (NEPA) because of the non-
discretionary nature of the civil penalty adjustment as required by law
(see 40 CFR 1508.1(w)(2)(vii)). The 2015 Act requires OSMRE to annually
adjust the amounts of its civil penalties to account for inflation as
measured by the Department of Labor's Consumer Price Index.
Accordingly, OSMRE has no discretion in the execution of the civil
penalty adjustments reflected in this final rule. Because this rule is
not a major Federal action, it is therefore not subject to the
requirements of NEPA. Even if this were a discretionary action subject
to NEPA, which it is not, a detailed statement under NEPA would
nevertheless not be required because, as a regulation of an
administrative nature, this rule would otherwise be covered by a
categorical exclusion (see 43 CFR 46.210(i)). OSMRE has determined that
the rule does not implicate any of the extraordinary circumstances
listed in 43 CFR 46.215 that would prevent reliance on the categorical
exclusion. Therefore, a detailed statement under NEPA is not required.
K. Effects on Energy Supply, Distribution, and Use (Executive Order
13211)
This rule is not a significant energy action under the definition
in E.O. 13211. A Statement of Energy Effects is not required.
L. Administrative Procedure Act
OSMRE is issuing this final rule without prior public notice or
opportunity for public comment. The 2015 Act requires agencies to
publish adjusted penalties annually. Under the 2015 Act, ``the notice
and comment process the [Administrative Procedure Act] generally
requires--i.e., notice, an opportunity for comment, and a delay in
effective date--is not required for agencies to issue regulations
implementing the annual adjustment[s]'' required by the 2015 Act. See
OMB Memorandum, M-25-02, at 4.
List of Subjects
30 CFR Part 723
Administrative practice and procedure, Penalties, Surface mining,
Underground mining.
30 CFR Part 724
Administrative practice and procedure, Penalties, Surface mining,
Underground mining.
30 CFR Part 845
Administrative practice and procedure, Law enforcement, Penalties,
Reporting and recordkeeping requirements, Surface mining, Underground
mining.
30 CFR Part 846
Administrative practice and procedure, Penalties, Surface mining,
Underground mining.
Delegation of Signing Authority
The action taken herein is pursuant to an existing delegation of
authority.
Adam G. Suess,
Acting Assistant Secretary, Land and Minerals Management.
For the reasons given in the preamble, the Department of the
Interior amends 30 CFR parts 723, 724, 845, and 846 as set forth below:
PART 723--CIVIL PENALTIES
0
1. The authority citation for part 723 continues to read as follows:
Authority: 28 U.S.C. 2461, 30 U.S.C. 1201 et seq., and 31
U.S.C. 3701.
0
2. In Sec. 723.14, revise table 1 to to read as follows:
Sec. 723.14 Determination of amount of penalty.
* * * * *
Table 1 to Sec. 723.14
------------------------------------------------------------------------
Points Dollars
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1....................................................... 84
2....................................................... 168
3....................................................... 252
4....................................................... 335
5....................................................... 421
6....................................................... 504
[[Page 23442]]
7....................................................... 588
8....................................................... 668
9....................................................... 755
10...................................................... 840
11...................................................... 922
12...................................................... 1,008
13...................................................... 1,089
14...................................................... 1,175
15...................................................... 1,262
16...................................................... 1,343
17...................................................... 1,427
18...................................................... 1,513
19...................................................... 1,595
20...................................................... 1,679
21...................................................... 1,765
22...................................................... 1,848
23...................................................... 1,931
24...................................................... 2,014
25...................................................... 2,098
26...................................................... 2,519
27...................................................... 2,938
28...................................................... 3,356
29...................................................... 3,619
30...................................................... 4,197
31...................................................... 4,616
32...................................................... 5,038
33...................................................... 5,457
34...................................................... 5,878
35...................................................... 6,296
36...................................................... 6,717
37...................................................... 7,137
38...................................................... 7,556
39...................................................... 7,975
40...................................................... 8,395
41...................................................... 8,817
42...................................................... 9,236
43...................................................... 9,652
44...................................................... 10,074
45...................................................... 10,494
46...................................................... 10,914
47...................................................... 11,333
48...................................................... 11,755
49...................................................... 12,172
50...................................................... 12,592
51...................................................... 13,010
52...................................................... 13,433
53...................................................... 13,853
54...................................................... 14,273
55...................................................... 14,694
56...................................................... 15,113
57...................................................... 15,530
58...................................................... 15,950
59...................................................... 16,372
60...................................................... 16,790
61...................................................... 17,210
62...................................................... 17,629
63...................................................... 18,050
64...................................................... 18,470
65...................................................... 18,888
66...................................................... 19,310
67...................................................... 19,730
68...................................................... 20,147
69...................................................... 20,568
70...................................................... 20,988
------------------------------------------------------------------------
0
3. In Sec. 723.15, revise the introductory text of paragraph (b) to
read as follows:
Sec. 723.15 Assessment of separate violations for each day.
* * * * *
(b) In addition to the civil penalty provided for in paragraph (a)
of this section, whenever a violation contained in a notice of
violation or cessation order has not been abated within the abatement
period set in the notice or order or as subsequently extended pursuant
to section 521(a) of the Act, 30 U.S.C. 1271(a), a civil penalty of not
less than $3,148 will be assessed for each day during which such
failure to abate continues, except that:
* * * * *
PART 724--INDIVIDUAL CIVIL PENALTIES
0
4. The authority citation for part 724 continues to read as follows:
Authority: 28 U.S.C. 2461, 30 U.S.C. 1201 et seq., and 31
U.S.C. 3701.
0
5. In Sec. 724.14, revise the first sentence of paragraph (b) to read
as follows:
Sec. 724.14 Amount of individual civil penalty.
* * * * *
(b) The penalty will not exceed $20,988 for each violation. * * *
PART 845--CIVIL PENALTIES
0
6. The authority citation for part 845 continues to read as follows:
Authority: 28 U.S.C. 2461, 30 U.S.C. 1201 et seq., 31 U.S.C.
3701, Pub. L. 100-202, and Pub. L. 100-446.
0
7. In Sec. 845.14, revise table 1 to read as follows:
Sec. 845.14 Determination of amount of penalty.
* * * * *
Table 1 to Sec. 845.14
------------------------------------------------------------------------
Points Dollars
------------------------------------------------------------------------
1....................................................... 84
2....................................................... 168
3....................................................... 252
4....................................................... 335
5....................................................... 421
6....................................................... 504
7....................................................... 588
8....................................................... 668
9....................................................... 755
10...................................................... 840
11...................................................... 922
12...................................................... 1,008
13...................................................... 1,089
14...................................................... 1,175
15...................................................... 1,262
16...................................................... 1,343
17...................................................... 1,427
18...................................................... 1,513
19...................................................... 1,595
20...................................................... 1,679
21...................................................... 1,765
22...................................................... 1,848
23...................................................... 1,931
24...................................................... 2,014
25...................................................... 2,098
26...................................................... 2,519
27...................................................... 2,938
28...................................................... 3,356
29...................................................... 3,619
30...................................................... 4,197
31...................................................... 4,616
32...................................................... 5,038
33...................................................... 5,457
34...................................................... 5,878
35...................................................... 6,296
36...................................................... 6,717
37...................................................... 7,137
38...................................................... 7,556
39...................................................... 7,975
40...................................................... 8,395
41...................................................... 8,817
42...................................................... 9,236
43...................................................... 9,652
44...................................................... 10,074
45...................................................... 10,494
46...................................................... 10,914
47...................................................... 11,333
48...................................................... 11,755
49...................................................... 12,172
50...................................................... 12,592
51...................................................... 13,010
52...................................................... 13,433
53...................................................... 13,853
54...................................................... 14,273
55...................................................... 14,694
56...................................................... 15,113
57...................................................... 15,530
58...................................................... 15,950
59...................................................... 16,372
60...................................................... 16,790
61...................................................... 17,210
62...................................................... 17,629
63...................................................... 18,050
64...................................................... 18,470
65...................................................... 18,888
66...................................................... 19,310
67...................................................... 19,730
68...................................................... 20,147
69...................................................... 20,568
70...................................................... 20,988
------------------------------------------------------------------------
0
8. In Sec. 845.15, revise the introductory text of paragraph (b) to
read as follows:
Sec. 845.15 Assessment of separate violations for each day.
* * * * *
(b) In addition to the civil penalty provided for in paragraph (a)
of this section, whenever a violation contained in a notice of
violation or cessation order has not been abated within the abatement
period set in the notice or order or as subsequently extended pursuant
to section 521(a) of the Act, 30 U.S.C. 1271(a), a civil penalty of not
less than $3,148 will be assessed for each day during which such
failure to abate continues, except that:
* * * * *
[[Page 23443]]
PART 846--INDIVIDUAL CIVIL PENALTIES
0
9. The authority citation for part 846 continues to read as follows:
Authority: 28 U.S.C. 2461, 30 U.S.C. 1201 et seq., and 31
U.S.C. 3701.
0
10. In Sec. 846.14, revise the first sentence of paragraph (b) to read
as follows:
Sec. 846.14 Amount of individual civil penalty.
* * * * *
(b) The penalty will not exceed $20,988 for each violation. * * *
[FR Doc. 2025-10064 Filed 6-2-25; 8:45 am]
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