99-68. Small Business Timber Sale Set-Aside Program; Appeal Procedures on Recomputation of Shares  

  • [Federal Register Volume 64, Number 2 (Tuesday, January 5, 1999)]
    [Rules and Regulations]
    [Pages 406-413]
    From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
    [FR Doc No: 99-68]
    
    
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    DEPARTMENT OF AGRICULTURE
    
    Forest Service
    
    36 CFR Part 223
    
    RIN 0596-AB62
    
    
    Small Business Timber Sale Set-Aside Program; Appeal Procedures 
    on Recomputation of Shares
    
    AGENCY: Forest Service, USDA.
    
    ACTION: Final rule.
    
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    [[Page 407]]
    
    SUMMARY: This final rule establishes procedures by which timber 
    purchasers may comment on an appeal the recomputation of shares and 
    related decisions made under the Small Business Timber Sale Set-aside 
    Program. This rule clarifies the kinds of decisions that are subject to 
    appeal, who may appeal decisions, the procedures for appealing 
    decisions, the timelines for appeal, and the contents of the notice of 
    appeal. The intended effect is to provide an opportunity for timber 
    sale purchasers to appeal small business shares as called for in the 
    conference report accompanying the Fiscal Year 1997 Omnibus 
    Appropriations Act. This final rule supersedes the interim rule 
    published March 24, 1997.
    
    DATES: This final rule is effective January 20, 1999.
    
    FOR FURTHER INFORMATION CONTACT: Rod Sallee, Forest Management Staff, 
    (202) 205-1766.
    
    SUPPLEMENTARY INFORMATION: 
    
    Background
    
        Developed in cooperation with the Small Business Administration, 
    the Forest Service Small Business Timber Sale Set-aside Program is 
    designed to ensure that qualifying small business timber purchasers 
    have the opportunity to purchase a fair proportion of National Forest 
    System timber offered for sale. The current set-aside program was 
    adopted July 26, 1990 (55 FR 30485).
        Under the program, the Forest Service must recompute the shares of 
    timber sales to be set aside for qualifying small businesses every 5 
    years on the actual volume of sawtimber that has been purchased and/or 
    harvested by small business. Also, shares must be recomputed if there 
    is a change in manufacturing capability, if the purchaser size class 
    changes, or if certain purchasers discontinue operations. Direction to 
    guide employees in administering the Small Business Timber Sale Set-
    aside Program is issued in the Forest Service Manual, Chapter 2430, and 
    Chapter 90 of the Forest Service Timber Sale Preparation Handbook (FSH 
    2409.18).
        In 1992, the agency adopted new administrative appeal procedures at 
    36 CFR part 215 in response to new statutory direction. These rules 
    apply to certain National Forest System project-level decisions for 
    which an environmental assessment (EA) or impact statement (EIS) has 
    been prepared. Because the recomputation of shares under the Small 
    Business Timber Sale Set-aside Program is not subject to documentation 
    in an EA or EIS, the decisions on the 1996-2000 Forest Service 
    recomputation of small business shares were not subject to the new 
    appeal procedures. However, since the agency had accepted appeals of 
    recomputation decisions under 36 CFR part 217 prior to adoption of part 
    215, the agency decided to establish procedures for providing notice to 
    affected purchasers with opportunity to comment on the recomputation of 
    shares. Notice of these procedures was published in the Federal 
    Register on February 28, 1996 (61 FR 7468).
        The Conference Report accompanying the 1997 Omnibus Appropriation 
    Act (Pub. L. 104-208) found the Forest Service decision to eliminate an 
    administrative appeals opportunity for the Small Business Timber Sale 
    Set-Aside Program ``unacceptable'' and directed the Forest Service to 
    reinstate an appeals process before December 31, 1996. The Conference 
    Report required that the agency establish a process by which purchasers 
    may appeal decisions concerning recomputations of Small Business Set-
    Aside (SBA) shares, structural recomputations of SBA shares, or changes 
    in policies impacting the Small Business Timber Sale Set-Aside Program. 
    It also provided that, as in the past, decisions related to the 
    designation of the sales to be set aside are not subject to appeal. An 
    interim rule published March 24, 1997 (62 FR 13826), went into effect 
    immediately to comply with the Conference Report accompanying the FY 
    1997 Omnibus Appropriations Act. However, the agency also requested 
    comment on the interim rule.
    
    Response to Comments Received
    
        Fifteen responses were received on the interim rule. Comments were 
    received from 13 purchasers, one timber industry representative 
    reflecting the joint views of four industry associations, and the Small 
    Business Administration. A summary of the comments and the Department's 
    response follows:
    
    General Comments
    
        Comment: Fairness and balance of the rule. One timber industry 
    reviewer remarked that the rules were not fair or balanced and should 
    be rejected.
        Response. This respondent did not specify what is unfair or 
    unbalanced in the interim rule and did not provide suggestions for 
    modifying or improving the regulations. Therefore, the Department is 
    unable to address the respondent's concerns directly. Nevertheless, the 
    Department believes the final rule is fair and balanced with regard to 
    both the decisions that can be appealed and who may participate in 
    appeals.
        Comment: Large purchasers influence. One respondent stated that the 
    interim rule gives ``undue influence to non-small business timber 
    purchasers'' and, as a result, limits the small business community's 
    opportunity to purchase a fair proportion of National Forest System 
    timber offered for sale.
        Response. It appears that this respondent does not understand that 
    the interim rule applies both to small and large businesses. The 
    interim rule limits neither party's opportunity to purchase National 
    Forest System timber and gives all purchasers within the area, 
    regardless of size, equal opportunity to comment on and appeal the 
    market share computations. Because the respondent was not specific 
    about how the rule gives ``undue influence to non-small business timber 
    purchasers,'' the Department is unable to address this comment in more 
    depth.
        Comment: Include appeals under 36 CFR part 251, subpart C. Several 
    respondents suggested placing the Small Business Timber Sale Set-Aside 
    Program appeal rule under 36 CFR part 251, subpart C, Appeal of 
    Decisions Relating to Occupancy and Use of National Forest Systems 
    Lands. In particular, an organization representing timber purchasers 
    asserted that the Forest Service had never explained why timber 
    purchasers are not afforded the same appeal procedures as other 
    National Forest System commercial users, such as holders of grazing, 
    mining, and special use permits.
        Response. Regulations at 36 CFR part 251, subpart C, set our 
    procedures for appealing decisions related to occupancy and use of 
    National Forest System lands through the issuance of written 
    authorizations. By contrast, timber sales are governed by contracts, 
    and contracts disputes are governed by the Contract Disputes Act of 
    1978 (41 U.S.C. 601 et seq.) settled by the Agriculture Board of 
    Contract Appeals under 7 CFR part 24. Moreover, the nature of the timer 
    sale set-aside decisions which are subject to appeal under 36 CFR 
    223.118 are more limited than those decision appealable under 36 CFR 
    part 251, subpart C, and the set-aside decisions precede the request 
    for bids and award of contracts, a prerequisite for appeal under 36 CFR 
    part 251. The Small Business Timber Sale Set-Aside Appeal process gives 
    purchasers the opportunity to appeal discrepancies in data related to 
    the share of timber to be made available for bidding by large and small 
    businesses, as well as other decisions about the recomputation process. 
    The Department believes trying to intermingle the set-aside sale 
    decisions and appeal
    
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    procedures in part 251, subpart C, would unnecessarily complicate the 
    appeal process and prove burdensome to the appellant and the agency. 
    However to the extent possible, the Department has made the Small 
    Business Timber Sale Set-Aside Appeal regulations consistent with the 
    procedural rules governing the appeal of other Forest Service decisions 
    under 36 CFR parts 215 and 217 in the belief that providing similar 
    appeal procedures for recomputation of shares and related decisions at 
    36 CFR part 223 should facilitate appellant understanding and use.
    
    Comments on Specific Provisions of the Interim Rule
    
        Section 223.118(a) Decisions subject to appeal. Paragraph (a) of 
    Sec. 223.118 specifies that only those decisions leading to 
    recomputation of shares in the Small Business Timber Sale Set-Aside 
    Program are subject to appeal. Decisions leading to the recomputation 
    of shares include structural change, special change, and market change 
    decisions as well as the scheduled 5-year recomputations of the small 
    business share of timer sales.
        Comment. Five respondents suggested that the range of decisions 
    subject to appeal should be expanded to include other critical 
    decisions, such as changes in delineation of market areas and decisions 
    to initiate a Small Business Timber Sale Set-Aside Program within the 
    market area (trigger decisions). By contrast, the Small Business 
    Administration (SBA) indicated that they would like to make certain 
    that the types of decisions subject to appeal in paragraph (a) of the 
    interim rule remain restricted to those listed in the interim rule as 
    structural, special, market change, or the scheduled 5-year 
    recomputation of the small business share of timber sales. The SBA 
    specifically disagreed with suggestions by some small purchasers that 
    decisions selecting the sales to be designated as timber set-aside 
    sales should also be appealable.
        Response. Because the SBA has the key responsibility for 
    administering the overall Small Business programs, the Department 
    concurs with SBA's recommendation not to expand the appeal categories.
        However, having considered industry comments, the Department 
    believes some clarification of the intended range and type of decisions 
    that are subject to appeal would be helpful. Some changes in the Small 
    Business Timber Sale Set-Aside Program require decisions to be made at 
    two different times; for example, structural changes have two decision 
    points--the first is the decision that a structural change is needed. 
    This is followed by a later decision that recomputes and establishes a 
    new small business share recomputation. Other unique situations, such 
    as carryover volume, may require two decisions, first, determining the 
    next recomputation period and, secondly, recomputing the shares. In 
    both cases, decisions made at the earlier stage as well as the later 
    stage are appealable. Paragraph (a) of the final rule has been revised 
    to clarify which decisions are appealable.
        The second sentence is paragraph 228.118(a) of the interim rule 
    described who may appeal recomputation related decisions. Since the 
    substance of this provision is already set out in paragraph (c), Who 
    may appeal or file written comments as an interested party, this 
    sentence is redundant and has been removed from paragraph (a) in the 
    final rule.
        Section 223.118(b)(1) Predecisional notice and comment. No comment 
    was received on this regulatory provision; therefore, no substantive 
    changes have been made to the text in the final rule.
        Section 223.118(b)(2) Notice of decision. Paragraph (b)(2) requires 
    the Responsible Official, upon close of the 30-day predecisonal review 
    period, to consider any comments received, make a decision on the small 
    business shares or related matters, and give prompt notice to all 
    parties on the bidders' list for the bid area.
        Comment. The Small Business Administration suggested that the 
    Forest Service and the Small Business Administration make a joint 
    decision on the small business shares, requiring the signature of 
    officials from both agencies on the Notice of Decision.
        Response. Agency officials ``cooperate fully with Small Business 
    Administration representatives in meeting the spirit and objectives of 
    the small business timber sale set-aside programs'' (FSM 2436.03). 
    Nevertheless, it would be unwieldy and time-consuming the require 
    approval of both agencies each time a decision on a Small Business 
    Timber Sale Set-Aside matter is made. Moreover, the administration of 
    the timber sale set-aside program, including decisions on recomputation 
    of shares, is ultimately the responsibility of the Forest Service. For 
    these reasons, the Department has not adopted this recommendation.
        Section 223.118(c) Who may appeal or file written comments. This 
    provision of the interim rule provides that only timber sale purchasers 
    who are affected by the recomputations of the small business share of 
    the timber sale program, or their representatives, and who have 
    submitted predecisional comment may appeal recomputation decisions.
        Comment. Several respondents agreed with the interim rule 
    requirement limiting appeal to timber sale purchasers who are on the 
    bidders' list for the affected area and who have submitted 
    predecisional comments. However, one respondent suggested that both 
    small and large businesses be given the opportunity to provide comment 
    as an interested party to any appeal submitted and several recommended 
    allowing interveners.
        Response. While the intent of the interim rule was to give both 
    small and large business the opportunity to participate as appellants 
    in the appeal process, the interim rule did not provide for interested 
    parties to participate. In light of the comment on this provision, the 
    Department has reconsidered and consequently has revised the final rule 
    at Sec. 223.118(c)(1) through (c)(3) to allow timber sale purchasers 
    who are affected by recomputation decisions and who submitted 
    predecisional comment to submit written comment as an interested party 
    to the Appeal Deciding Officer within 15 days after the close of the 
    appeal filing period for any filed appeal.
        Comment. One respondent remarked that a timber purchasing firm with 
    legitimate interest in being an appellant might not have filed earlier 
    comments in the firm's name, because the comments were filed in the 
    name of an association to which the firm belongs. In this case, if the 
    association does not wish to pursue an appeal, but one of its members 
    firms wants to appeal, the respondent felt that the member firm should 
    not be barred from filing an appeal based on the fact that it was not 
    an entity that had commended earlier.
        Response. The Department disagrees that the member firm should have 
    the right to appeal without having commented as an individual timber 
    sale purchaser on the predecisional notice. However, the agency has 
    reconsidered who may be considered interested parties to an appeal and, 
    subsequently, has amended the language in the final rule to allow 
    member firms to file comments on an appeal as an interested party. 
    Paragraph (c)(2) of Sec. 223.118 clarifies that a timber sale purchaser 
    is considered an interested party, even if an association of which they 
    are a member files comments but decides not to appeal. The rule makes 
    clear that if an association appeals but the individual timber sale 
    purchaser did not file an individual predecisional
    
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    comment, then the purchaser is not eligible to file a separate appeal.
        Comment. One respondent suggested that affected purchasers be 
    defined as small business companies employing less than five hundred 
    employees.
        Response. The Department disagrees that affected purchasers should 
    be limited to small businesses and that only small businesses should be 
    able to appeal small business share decisions. The small business set-
    aside program is designed to allocate shares among small and large 
    businesses and, therefore, large and small businesses are equally 
    eligible to appeal recomputation decisions or file written comments as 
    interested parties.
        Section 223.118(d) Level of appeal. This provision of the interim 
    rule provides for one level of appeal and notes that the Appeal 
    Deciding Officer is normally the Regional Forester.
        Comment. One respondent suggested that appeals under this rule be 
    decided by the highest official in the Forest Service.
        Response. The Department disagrees with this suggestion. Share 
    decisions are located decisions affecting a defined market area. The 
    land management official who oversees timber sales for the area is best 
    prepared to make such a decision. Issues can best be understood and 
    addressed through local dialogue. Also, this provision is consistent 
    with the general appeal process at 36 CFR part 215, which provides only 
    one level of appeal.
        Section 223.118(e) through (h)(2). No comments were received on 
    paragraphs Sec. 223.118(e) through (h)(2) of the interim rule; 
    therefore, these paragraphs are retained as they appeared in the 
    interim rule, except for minor editorial changes.
        Section 223.118(h) Dismissal without decision. The agency 
    determined that further clarification was needed to specify what 
    information is required in order to review an appeal and to clarify 
    that an appeal will be dismissed without decision unless that 
    information is provided. Therefore, a new paragraph (h)(3) is added to 
    this section which states that the Appeal Deciding Officer must dismiss 
    an appeal if the appellant's notice of appeal does not contain the 
    information required by paragraph (f) of this section. Paragraph (h)(3) 
    of the interim rule is retained but is redesignated paragraph (h)(4) in 
    the final rule.
        Section 223.118(i) Appeal record. No comments were received on this 
    provision and, subsequently, no substantive changes are made to this 
    paragraph in the final rule.
        Section 223.118(j) Appeal decision. This provision of the interim 
    rule states that the Appeal Deciding Officer shall review the decision 
    and appeal record and issue a written appeal decision to the parties 
    within 30 days of the close of the appeal period. The Appeal Deciding 
    Officer may affirm or reverse the Responsible Official's decision, in 
    whole or in part. The time period for issuing the appeal decision may 
    not be extended. Additional provisions of this paragraph of the interim 
    rule state that if a decision is not rendered within the required 30 
    days, the existing decision is automatically affirmed. The Appeal 
    Deciding Officer's decision or the failure of the Appeal Deciding 
    Officer to decide within the required 30 days would constitute a final 
    administrative decision of the Department of Agriculture.
        Comment. Ten respondents suggested requiring a formal response to 
    an appeal rather than allowing automatic affirmation of the existing 
    decision if no formal response was made within 30 days.
        Response. Upon reconsideration, the Department agrees with this 
    suggestion. Accordingly, the final rule at Sec. 223.118(j) is revised 
    to require the Appeal Deciding Officer to issue a written appeal 
    decision to the parties within 30 days of the close of the appeal 
    period. The provision in the interim rule at Sec. 223.118(j), which 
    affirmed the decision under appeal if no formal response is made within 
    30 days, is not retained in the final rule.
        Comment. Several respondents suggested allowing oral presentation 
    during the appeal process. In addition, one respondent remarked that 
    Sec. 215.16 of this chapter of the Code of Federal Regulations allows 
    parties to request a meeting for informal discussions.
        Response. The provisions at part 215 of this chapter provide an 
    informal process for resolving issues concerning National Forest System 
    projects and activities. The Small Business Timber Sale Set-aside 
    Appeal process is designed, however, to address discrepancies in data 
    used to make the recomputation of shares. Because of the factual basis 
    of the information provided for recomputation appeals, an oral 
    presentation would not likely be the best medium for presenting data in 
    an appeal of this type. Furthermore, there is ample opportunity for 
    informal discussion with he responsible official prior to the decision. 
    Paragraph (b)(1) of Sec. 223.118 allows 30 days for predecisional 
    review and comment. However, in response to this comment and to provide 
    additional opportunity to discuss and clarify factual material, a new 
    paragraph (j)(2) has been added to permit Appeal Deciding Officers, at 
    their discretion, to invite an appellant to discuss data relevant to 
    the appeal.
        Comment. Several respondents recommended that responsive statements 
    be a requirement of the appeals process.
        Response. If the Responsible Official and the Appeal Deciding 
    Officer agree that the information in the appeal records clearly 
    demonstrates the basis for the decision, then a responsive statement 
    addressing the points of the appeal is not necessary. If the records do 
    not adequately demonstrate the basis for the decision, then the 
    Responsible Official may voluntarily prepare or the Appeal Deciding 
    Officer may direct that the Responsible Official prepare a responsive 
    statement. Also, the Appeal Deciding Officer may request additional 
    information from either the Responsible Official or the appellant for 
    clarification of appeal issues. The clarifying information must be 
    based upon information previously documented in the files or in the 
    appeal. A voluntarily prepared responsive statement or any information 
    provided as a result of the Appeal Deciding Officer's request for more 
    information must be made available to both parties. Either party will 
    have 5 days after the Appeal Deciding Officer receives the additional 
    information to review and comment on the information, and the appeal 
    decision period will be extended 5 additional days to accommodate this 
    review period.
        The Appeal Deciding Officer must review the decision and appeal 
    record and issue a written appeal decision to the parties within 30 
    days of the close of the appeal period, except, as previously noted, 
    that period will be extended to 35 days to allow 5 days review by 
    parties when additional information is requested by the Appeal Deciding 
    Officer.
        Paragraph 223.118(j) of this section has been revised to 
    incorporate these procedures and timeframes.
        Comment. The Small Business Administration suggested that the 
    regulations include a provision requiring the Appeal Deciding Officer 
    to consult with the Small Business Administration on appeals of 
    recomputations.
        Response. Forest Service Manual direction already requires 
    employees to cooperate fully with the Small Business Administration 
    (FSM 2436.03). In addition, a Forest Service Responsible Official is 
    required to consult the Small Business Administration when issuing an 
    initial decision that is subject to appeal (FSH 2409.18, 91).
    
    [[Page 410]]
    
    Administration of the agency's Small Business Administration Program, 
    including decisions on recomputation of shares, is the responsibility 
    of the Forest Service; therefore, the Department has not adopted this 
    recommendation. However, in recognition of the potential value of the 
    Small Business Administration's participation in the appeals process, 
    the Department has revised paragraph (c)(2) to include the Small 
    Business Administration as an interested party to an appeal under this 
    section.
        Section 223.118(k) Implementation of decisions during pendency of 
    appeal. No comments were received on this provision of the interim 
    rule; therefore, the paragraph is retained without change in the final 
    rule.
        Section 223.118(l) Timber sale set-aside policy changes. The agency 
    received no comment on paragraph Sec. 223.118(l) of the interim rule; 
    therefore, this paragraph is retained without change in the final rule. 
    As stated in the preamble of the interim rule, timber purchasers are 
    given an opportunity to review and comment on significant changes in 
    the Small Business Timber Sale Set-aside program or policy prior to 
    adoption and implementation. This opportunity is given through Federal 
    Register notice and is consistent with the agency's treatment of all 
    other major policy decisions.
    
    Controlling Paperwork Burdens on the Public
    
        In the interim rule, the agency requested comment on the 
    information collection requirement for the Small Business Timber Sale 
    Set-aside Program, Office of Management and Budget number 0596-0141. 
    The information required by paragraph (f) of the interim rule must be 
    provided by purchasers who object to the decision recomputing timber 
    sales to be set aside for small timber purchasers and who wish to file 
    an appeal.
        Comment. One respondent commented that the estimates of the time 
    required to prepare appeals of Small Business Timber Sale Set-aside 
    decisions were too low. This respondent assumed that an appellant would 
    have to develop an individual database, and, under this assumption, the 
    reviewer stated that it would take 4-hours per market area per 6-month 
    period to collect the Small Business Set-aside decision appeal 
    information into a data-base. This respondent suggested that the burden 
    be increased to 8 hours per market area to analyze any proposed change 
    and 2 hours to write the comments. Another respondent indicated that 
    the agency's estimate of the burden of the proposed collection is ``way 
    low.'' This respondent also said that managing the information 
    collection electronically would reduce the burden of collection.
        Response. The requirements in Sec. 223.118 (f) set out the 
    information that must be provided in a notice of appeal of 
    recomputations of Small Business Set-aside Timber Sale shares or 
    related decisions. The agency does not expect that appellants would 
    need to establish an individual database in order to collect this 
    information, since commercial databases are already available which 
    provide easy, fast access to recomputation-related information.
        Furthermore, the agency recognizes that the time to prepare a 
    collection would vary depending on the appeal issue. The estimate of 
    the burden of the proposed collection is intended to be an average of 
    the time that might be required to file an appeal under these 
    regulations. Therefore, the Department does not agree that an 
    adjustment to the number of hours is needed.
        Comment. One respondent thought that the proposed collection of 
    information appears reasonable except for the requirements of paragraph 
    (f)(2)(vi) of the rule, which requires the appellant to list specific 
    references to any law, regulation, or policy that the appellant 
    believes to have been violated and the basis for such an allegation, 
    and paragraph (f)(2)(vii), which requires a statement as to whether and 
    how the appellant has tried to resolve with the Responsible Official 
    the issue(s) being appealed, including evidence of submission of 
    written comments at the predecisional stage. The respondent indicated 
    that listing legal references does not add meaningful information and 
    remarked that the burden of documenting how issues have been resolved 
    should be shared between the appellant and the Responsible Official.
        Response. The Department agrees that in some circumstances the 
    requirements of paragraph (f)(2)(vi) may not apply to the decision 
    being appealed and, accordingly, has edited the provision to indicate 
    that this information is needed only if the appellant believes a law, 
    regulation, or order is being violated. Paragraph (f)(2)(vii) is 
    intended to encourage resolution of the issues in the spirit of an 
    informal administrative process and, thus, avoid entering into a formal 
    appeal process. Documenting whether and how such issue resolution 
    occurred is not intended to be burdensome, but the information is 
    necessary to provide evidence that the party did submit predecisonal 
    comments and, therefore, is eligible to appeal. Accordingly, the 
    Department does not agree that a change in paragraph (f)(2)(vii) is 
    necessary.
        This information collection has been reviewed by the Office of 
    Management and Budget according to the provisions of the Paperwork 
    Reduction Act of 1995 (44 U.S.C. 3501 et seq.) and implementing 
    regulations at 5 CFR part 1320. The Office of Management and Budget has 
    approved information requirements and assigned control number 0596-
    0141, which expires May 31, 2000.
        The preamble to the interim rule stated that when the information 
    collection was approved by the Office of Management and Budget, a 
    separate notice would be published in the Federal Register announcing 
    the effective date of the information requirements. Although the agency 
    received this approval, due to an oversight, the agency did not publish 
    notice of that approval prior to publication of this final rule. The 
    final rule contains a new paragraph (m) which sets forth the 
    information collection control number.
    
    Other Comments
    
        Several respondents commented on other aspects of the timber sale 
    set-aside program. Two respondents said the small business appeal 
    process was not needed. One reviewer commented on the difficulty that 
    small companies have bidding against large companies. These comments 
    are beyond the scope of this rulemaking, and, therefore, not addressed 
    as part of this final rule.
    
    Conclusion
    
        Based on the comments received, the interim rule has been revised 
    to clarify decisions subject to appeal, to allow interested party 
    participation, to modify information requirements in an appeal, to 
    allow the Appeal Deciding Officer to request additional information 
    from the appellant or a responsive statement from the Responsible 
    Official, to remove automatic affirmation of the existing decision, and 
    to clarify the filing procedure, when appeals may be dismissed without 
    decision, and the appeal decision process. The final rule offers 
    affected timber purchasers of any size the opportunity to appeal 
    decisions related to the recomputation of share calculations for the 
    Timber Sale Set-aside Program.
    
    Environmental Impact
    
        This final rule would establish uniform procedures for providing 
    qualifying timber purchasers the opportunity to review, comment on, and
    
    [[Page 411]]
    
    appeal decisions on recomputed shares of the Timber Sale Set-aside 
    Program. Section 31.1b of Forest Service Handbook 1909.15 (57 FR 43180; 
    September 18, 1992) excludes from documentation in an environmental 
    assessment or impact statement ``rules, regulations, or policies to 
    establish Service-wide administrative procedures, program processes, or 
    instructions.'' The agency's assessment is that this final rule falls 
    within this category of actions and has no direct or indirect 
    environmental impact, and that no extraordinary circumstances exist 
    which would require preparation of an environmental assessment or 
    environmental impact statement. No comments were received to the 
    contrary.
    
    Unfunded Mandates Reform
    
        Pursuant to Tile II of the Unfunded Mandates Reform Act of 1995, 
    which the President signed into law on March 22, 1995, the Department 
    has assessed the effects of this rule on State, local, and tribal 
    governments and the private sector. This final rule does not compel the 
    expenditure of $100 million or more by any State, local, or tribal 
    governments or anyone in the private sector. Therefore, a statement 
    under section 202 of the Act is not required.
    
    Regulatory Impact
    
        This final rule has been reviewed under USDA procedures and 
    Executive Order 12866 on Regulatory Planning and Review. It has been 
    determined that this is not a significant rule. This rule will not have 
    an annual effect of $100 million or more on the economy nor adversely 
    affect productivity, competition, jobs, the environment, public health 
    or safety, nor State or local governments. This final rule will not 
    interfere with an action taken or planned by another agency nor raise 
    new legal or policy issues. Finally, this action will not alter the 
    budgetary impact of entitlement, grants, user fees, or loan programs or 
    the rights and obligations of recipients of such programs. Accordingly, 
    this final rule is not subject to Office of Management and Budget 
    review under Executive Order 12866.
        Pursuant to 5 U.S.C. 605(b), it is hereby certified that this final 
    rule has been considered in light of the Regulatory Flexibility Act (5 
    U.S.C. 60 et seq.) and that this action will not have a significant 
    economic impact on a substantial number of small entities as defined by 
    that Act. The final rule imposes no additional requirements on small 
    business timber sale purchasers or other small entities. It merely 
    implements legislative intent to provide small purchasers an 
    administrative appeal opportunity. To facilitate the preparation and 
    process of timber sale set-aside appeals, the agency has kept the 
    appeal procedures as streamlined and as simple as possible.
    
    No Takings Implications
    
        This final rule has been analyzed in accordance with the principles 
    and criteria contained in Executive Order 12630, and it has been 
    determined that the rule does not pose the risk of a taking of 
    Constitutionally-protected private property. This final rule provides 
    qualifying timber sales purchasers the opportunity to comment on and 
    appeal the procedures for purchasing a fair proportion of the National 
    Forest System timber offered for sale and neither abrogates or expands 
    any rights related to such sales.
    
    Civil Justice Reform Act
    
        This final rule has been reviewed under Executive Order 12788, 
    Civil Justice Reform, therefore: (1) all state and local laws and 
    regulations that are in conflict with this final rule or which would 
    impede its full implementation would be preempted; (2) no retroactive 
    effect would be given to this final rule; and (3) it would not require 
    administrative proceedings before parties may file suit in court 
    challenging its provisions.
    
    List of Subjects in 36 CFR Part 223
    
        Administrative practice and procedure, Exports, Forests and forest 
    products, Government contracts, National forests, and Reporting and 
    recordkeeping requirements.
    
        Therefore, for the reasons set forth in the preamble, Subpart B of 
    Part 223 of Title 36 of the Code of Federal Regulations is hereby 
    amended as follows:
    
    PART 223--SALE AND DISPOSAL OF NATIONAL FOREST SYSTEM TIMBER
    
        1. The authority citation for Part 223 continues to read as 
    follows:
    
        Authority: 90 Stat. 2958, 16 U.S.C. 472a; 98 Stat. 2213, 16 
    U.S.C. 618; 104 Stat. 714-726, 16 U.S.C. 620-620h, unless otherwise 
    noted.
    
    Subpart B--Timber Sale Contracts--[Amended]
    
        2. Revise Sec. 223.118 to subpart B to read as follows:
    
    
    Sec. 223.118  Appeal process for small business timber sale set-aside 
    program share recomputation decisions.
    
        (a) Decisions subject to appeal. The rules of this section govern 
    appeal of recomputation decisions related to structural, special, or 
    market changes or the scheduled 5-year recomputations of the small 
    business share of National Forest System timber sales. Certain 
    decisions related to recomputation of shares, such as structural change 
    and carryover volume, may require two decisions, one to determine that 
    a recomputation is needed and the other to recompute the shares. 
    Decisions made both at the earlier stage as well as the later stage are 
    appealable.
        (b) Manner of giving notice. (1) Predecisional notice and comment. 
    The Responsible Official shall provide qualifying timber sale 
    purchasers, as defined in paragraph (c)(1) of this section, 30 days for 
    predecisional review and comment on any draft decision to reallocate 
    shares, including the data used in making the proposed recomputation 
    decision.
        (2) Notice of decision. Upon close of the 30-day predecisional 
    review period, the Responsible Official shall consider any comments 
    received. Within 15 days of the end of the comment period, the 
    Responsible Official shall make a decision on the small business shares 
    and shall give prompt written notice to all parties on the national 
    forest timber sale bidders list for the affected area. The notice of 
    decision must identify the name of the Appeal Deciding Officer, the 
    address, the date by which an appeal must be filed, and a source for 
    obtaining the appeal procedures information.
        (c) Who may appeal or file written comments as an interested party. 
    (1) Only timber sale purchasers, or their representatives, who are 
    affected by recomputations of the small business share of timber sales 
    as described in paragraph (a) of this section and who have submitted 
    predecisional comments pursuant to paragraph (b)(1) of this section, 
    may appeal recomputation decisions under this section or may file 
    written comments as an interested party.
        (2) Interested parties are defined as the Small Business 
    Administration and those timber sale purchasers, or their 
    representatives, who are affected by recomputations of the small 
    business share of timber sales as described in paragraph (a) of this 
    section and who have individually, or through an association to which 
    they belong, submitted predecisional comments pursuant to paragraph 
    (b)(1) of this section.
        (i) A timber sale purchaser may submit comments on an appeal as an 
    interested party if an association to which the purchaser belongs filed 
    predecisional comment but later decides
    
    [[Page 412]]
    
    not to appeal or not to file comments as an interested party.
        (ii) A timber sale purchaser, who is a member of an association 
    that appeals a decision, may not file a separate appeal unless that 
    purchaser filed separate predecisional comment under paragraph (b)(1).
        (3) Interested parties who submit written comments on an appeal 
    filed by another party may not continue an appeal if the appellant 
    withdraws the appeal.
        (d) Level of appeal. Only one level of review is available for 
    appeal of decisions pertaining to recomputations under the Small 
    Business Timber Sale Set-aside Program. The Appeal Deciding Officer is 
    the official one level above the level of the Responsible Official who 
    made the recomputation of shares decision. The Responsible Official is 
    normally the Forest Supervisor; thus, the Appeal Deciding Officer is 
    normally the Regional Forester. However, when the Regional Forester 
    makes recomputation decisions, the Appeal Deciding Officer is the Chief 
    or such officer at the National headquarters level as the Chief may 
    designate.
        (e) Filing procedures. In order to file an appeal under this 
    section, an appellant must file a notice of appeal, as specified in the 
    notice of decision, with the Appeal Deciding Officer within 20 days of 
    the date on the notice of the decision. This date must be specified in 
    the notice of decision given pursuant to paragraph (b)(2) of this 
    section. Written comments filed by an interested party in response to 
    an appeal must be filed within 15 days after the close of the appeal 
    filing period.
        (f) Content of notice of appeal. (1) It is the responsibility of 
    the appellant to provide sufficient narrative evidence and argument to 
    show why a recomputation decision by the Responsible Official should be 
    reversed or changed.
        (2) An appellant must include the following information in a notice 
    of appeal:
        (i) The appellant's name, mailing address, and daytime telephone 
    number;
        (ii) The title or type of recomputation decision involved, the date 
    of the decision, and the name of the Responsible Official;
        (iii) A brief description and date of the decision being appealed:
        (iv) A statement of how the appellant is adversely affected by the 
    decision being appealed;
        (v) A statement of the facts in dispute regarding the issue(s) 
    raised by the appeal;
        (vi) If relevant, any specific references to any law, regulation, 
    or policy that the appellant believes to have been violated and the 
    basis for such an allegation;
        (vii) A statement as to whether and how the appellant has tried to 
    resolve with the Responsible Official the issue(s) being appealed, 
    including evidence of submission of written comments at the 
    predecisional stage as provided by paragraph (a) of this section, the 
    date of any discussion, and the outcome of that meeting or contact; and
        (viii) A statement of the relief the appellant seeks.
        (g) Time periods and timeliness. (1) All time periods applicable to 
    this section will begin on the first day following a decision or action 
    related to the appeal.
        (2) Time periods applicable to this section are computed using 
    calendar days. Saturdays, Sundays, or Federal holidays are included in 
    computing the time allowed for filing an appeal; however, when the 
    filing period would expire on a Saturday, Sunday, or Federal holiday, 
    the filing time is automatically extended to the end of the next 
    Federal working day.
        (3) It is the responsibility of those filing an appeal to file the 
    notice of appeal by the end of the filing period. In the event of 
    questions, legible postmarks on a mailed appeal or the time and date 
    imprint on a facsimile appeal will be considered evidence of timely 
    filing. Where postmarks or facsimile imprints are illegible, the Appeal 
    Deciding Officer shall rule on the timeliness of the notice of appeal.
        (4) The time period for filing a notice of appeal is not 
    extendable.
        (h) Dismissal without decision. The Appeal Deciding Officer shall 
    dismiss an appeal and close the record without a decision in any of the 
    following circumstances:
        (1) The appellant is not on the timber sale bidders list for the 
    area affected by the recomputation decision;
        (2) The appellant's notice of appeal is not filed within the 
    required time period;
        (3) The appellant's notice of appeal does not contain responses 
    required by paragraphs (f)(2)(i) through (f)(2)(viii) of this section; 
    or
        (4) The appellant did not submit written comments on the proposed 
    decision of the new recomputed shares as described in paragraph (c) of 
    this section.
        (i) Appeal record. The appeal record consists of the written 
    decision being appealed, any predecisional comments received, any 
    written comments submitted by interested parties, any other supporting 
    data used to make the decision, the notice of appeal, and, if prepared, 
    a responsive statement by the Responsible Official which addresses the 
    issues raised in the notice of appeal. The Responsible Official must 
    forward the record to the Appeal Deciding Officer within 7 days of the 
    date the notice of appeal is received. A copy of the appeal record must 
    be sent to the appellant at the same time.
        (j) Appeal decision. (1) Responsive statement for appeal decision. 
    The Appeal Deciding Officer may request the Responsible Official to 
    prepare a responsive statement. However, if the information in the 
    files clearly demonstrates the rationale for the Responsible Official's 
    decision, then a responsive statement addressing the points of the 
    appeal is not necessary.
        (2) Appeal issue clarification. For clarification of issues raised 
    in the appeal, the Appeal Deciding Officer may request additional 
    information from either the Responsible Official, the appellant, or an 
    interested party who has submitted comments on the appeal. At the 
    discretion of the Appeal Deciding Officer, an appellant or interested 
    party may be invited to discuss data relevant to the appeal. 
    Information provided to clarify issues or facts in the appeal must be 
    based upon information previously documented in the file or appeal. Any 
    information provided as a result of the Appeal Deciding Officer's 
    request for more information must be made available to all parties, 
    that is, to the Responsible Official, the appellant, and interested 
    parties who have submitted comments on the appeal. All parties will 
    have 5 days after the Appeal Deciding Officer receives the additional 
    information to review and comment on the information, and the appeal 
    decision period will be extended 5 additional days.
        (3) Issuance of final decision. The Appeal Deciding Officer shall 
    review the decision and appeal record and issue a written appeal 
    decision to the parties within 30 days of the close of the appeal 
    period except that this period must be extended to 35 days when 
    additional information is requested by the Appeal Deciding Officer. The 
    Appeal Officer may affirm or reverse the Responsible Official's 
    decision, in whole or in part. There is no extension of the time period 
    for rendering an appeal decision.
        (k) Implementation of decisions during pendency of appeal. 
    Recomputation of shares arising from a scheduled 5-year recomputation 
    are effective on April 1 following the end of the 5-year period being 
    considered. If an appeal that may affect the shares for the
    
    [[Page 413]]
    
    next 5-year period is not resolved by the April 1 date, the share 
    decision announced by the Responsible Official must be implemented. If 
    an appeal decision results in a change in the shares, the revised total 
    share of the Small Business Timber Sale Set-aside Program must be 
    accomplished during the remaining portion of the 5-year period.
        (l) Timber sale set-aside policy changes. Timber purchasers shall 
    receive an opportunity, in accordance with all applicable laws and 
    regulations, to review and comment on significant changes in the Small 
    Business Timber Sale Set-aside Program or policy prior to adoption and 
    implementation.
        (m) Information collection requirements. The provisions of 
    paragraph (f) of this section specify the information that appellants 
    must provide when appealing decisions pertaining to recomputation of 
    shares. As such, these rules contain information requirements as 
    defined in 5 CFR Part 1320. These information requirements have been 
    approved by the Office of Management and Budget and assigned control 
    number 0596-0141.
    
        Dated: December 29, 1998.
    Anne Kennedy,
    Deputy Under Secretary, Natural Resources and Environment.
    [FR Doc. 99-68 Filed 1-4-99; 8:45 am]
    BILLING CODE 3410-11-M
    
    
    

Document Information

Effective Date:
1/20/1999
Published:
01/05/1999
Department:
Forest Service
Entry Type:
Rule
Action:
Final rule.
Document Number:
99-68
Dates:
This final rule is effective January 20, 1999.
Pages:
406-413 (8 pages)
RINs:
0596-AB62: Small Business Timber Sale Set-Aside Program; Appeal Procedure on Recomputation of Shares
RIN Links:
https://www.federalregister.gov/regulations/0596-AB62/small-business-timber-sale-set-aside-program-appeal-procedure-on-recomputation-of-shares
PDF File:
99-68.pdf
CFR: (2)
36 CFR 215.16
36 CFR 223.118