[Federal Register Volume 59, Number 81 (Thursday, April 28, 1994)]
[Unknown Section]
[Page ]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 94-9966]
[Federal Register: April 28, 1994]
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DEPARTMENT OF THE INTERIOR
Office of Surface Mining Reclamation and Enforcement
Notice of Intent To Prepare an Environmental Impact Statement
AGENCY: Office of Surface Mining Reclamation and Enforcement, Interior.
ACTION: Notice of intent to prepare an environmental impact statement
and to hold scoping meetings.
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SUMMARY: The Office of Surface Mining Reclamation and Enforcement (OSM)
proposes to revise a draft environmental impact statement (EIS) which
analyzed the environmental impacts of the alternatives for rulemakings
that would (1) define the term Valid Existing Rights (VER), and (2)
determine the degree, if any, to which subsidence resulting from
underground coal mining is subject to the prohibitions of section
522(e) of the Surface Mining Control and Reclamation Act of 2977
(SMCRA). OSM invites comments on the scope of the analysis and will
hold scoping meetings upon request. OSM would like to emphasize,
however, the comments received on the previous draft EIS are being
considered and need not be re-submitted.
DATES: Written comments: OSM will accept written comments on the scope
of the EIS until 5 p.m. Eastern Time on May 31, 1994.
Scoping meetings: OSM will meet with interested persons upon
request to discuss the scope of the EIS until May 31, 1994. See
ADDRESSES for the location of the meetings.
ADDRESSES: Written comments: Hand deliver to the Office of Surface
Mining Reclamation and Enforcement, Administrative Record, room 660,
800 North Capitol Street, NW., Washington, DC; or mail to the Office of
Surface Mining Reclamation and Enforcement, Administrative Record 660-
NC, 1951 Constitution Avenue NW., Washington, DC 20240.
Scoping meetings: Upon request, OSM staff will be available to meet
with interested persons, individually or in groups, during the comment
period at the following OSM locations: Eastern Support Center, Ten
Parkway Center, Pittsburgh, Pennsylvania 15220 (Contact: Chuck Wolf,
412-937-2897); Western Support Center, 1020 15th Street, Second Floor,
Denver, Colorado 80202 (Contact: Floyd McMullen, 303-844-3104);
Knoxville Field Office, 530 Gay Street, suite 500, Knoxville, Tennessee
37902 (Contact: Gary Tucker, 615-545-4122); and Branch of Environmental
and Economic Analysis, rm 640, 800 North Capitol Street, Washington, DC
20002 (Contact: Andy Devito, 202-343-5150).
FOR FURTHER INFORMATION CONTACT:
Andy DeVito, Office of Surface Mining Reclamation and Enforcement, 1951
Constitution Avenue NW., room 640-NC, Washington, DC 20240; Telephone:
202-343-5150.
SUPPLEMENTARY INFORMATION: OSM proposes to revise the draft EIS that
was made available to the public on April 19, 1991 (56 FR 16102). The
draft EIS analyzed the environmental impacts of the alternatives for a
rulemaking that would (1) define the term VER, and (2) determine the
degree, if any, to which subsidence resulting from underground coal
mining is subject to the prohibitions of section 522(e) of SMCRA.
OSM had decided to issue a revised draft for two reasons. First,
prior to the close of the comment period on the April 1991 draft EIS,
OSM published a notice (56 FR 33170, July 18, 1991), which informed the
pubic that, in response to an inquiry from OSM, the Department of the
Interior's Office of the Solicitor had recently revised the issue of
whether the prohibitions of section 522(e) of SMCRA apply to subsidence
resulting from underground coal mining, and issue a Memorandum Opinion
(M-36971, July 10, 1991). The Solicitor's Memorandum Opinion concluded
that the best interpretation of SMCRA is that subsidence is not a
surface coal mining operation subject to the prohibitions of section
522(e). The July 18, 1991 Federal Register notice also stated that OSM
had determined that existing regulations were consistent with the
position and, therefore, no further rulemaking on the issue was
necessary. In an August 1, 1991 notice (56 FR 36843), extending the
comment period on the draft EIS, OSM informed the public that
commenters should be aware that since the issuance of the draft EIS,
the issue of whether and to what degree subsidence is covered by the
mining prohibitions set forth in section 522(e) of SMCRA, had been
resolved as a result of the Solicitor's Opinion and the July 18 1991
Federal Register notice.
In September 1991, a lawsuit was filed against the Secretary,
challenging the July 18, 1991 Federal Register notice. On September 22,
1993, in National Wildlife Federation v. Babbitt, No. 91-2275,
(D.D.C.), the court held that OSM's July 18, 1991 Federal Register
notice concerning the applicability of section 522(e) to subsidence was
a legislative rule issued in violation of the Administrative Procedure
Act (APA). The court remanded the matter to the Secretary for
rulemaking in accordance with the requirements of the APA. The court
also noted for the record that OSM must either prepare an EIS or state
on the record the reasons why an EIS had not bee prepared.
OSM also intends to publish a new proposed rule defining VER.
Since both the VER rule and the rule on the applicability of 522(e)
to subsidence relate to the scope of the prohibitions of 522(e), and
both rules have been previously addressed in a combined draft EIS on
two occasions, OSM again intends to issue a revised draft EIS
addressing both rules.
The second reason for a revised draft EIS is that it will have the
benefit of the many comments that were submitted on the April 1991
draft EIS.
Previous Scoping Activity
OSM published a notice of intent to conduct rulemaking on the
applicability of the prohibitions in section 522(e) (4) and (5) to
subsidence resulting from underground mining on April 3, 1985 (50 FR
13250). Subsequently, OSM published a notice of intent to prepare an
EIS to analyze the environmental impacts of the rulemaking on
subsidence, as required by the National Environmental Policy Act
(NEPA), on June 19, 1985 (50 FR 25473). Scoping meetings were then held
in Pittsburgh, Pennsylvania, on August 1, 1985; in St. Louis, Missouri,
on August 6, 1985; and in Washington, DC, on August 9, 1985. OSM
received written comments during that period also.
Based on the comments received, OSM decided to combine the
environmental analysis of a rulemaking on VER with the analysis of the
rulemaking on subsidence. On January 22, 1987 (52 FR 2421), OSM
published a notice of intent to (1) prepare an EIS on those
rulemakings, and (2) hold a scoping meeting to address public comments
on February 6, 1987, in Washington, DC. The public meeting was held to
receive comments from interested persons on the specific alternatives
evaluated in the EIS and on the scope and significance of the issues to
be analyzed. Federal agencies whose lands would be affected also were
invited to discuss data problems. Upon request, OSM held a second
meeting on February 23, 1987, to hear comments from environmental
groups unable to attend the February 6, 1987 meeting. Again, OSM
received written comments.
All written comments submitted as part of scoping for the EIS, as
well as all testimony presented at the public meetings on the EIS, were
considered in the preparation of that draft EIS, which was published
concurrently with a proposed rule addressing both VER and subsidence on
December 27, 1988. However, on July 21, 1989 (54 FR 30557), OSM
withdrew the proposed rule.
Subsequently, OSM made a decision to consider the VER rulemaking
and the rulemaking on the applicability of section 522(e) to subsidence
separately. At the same time, OSM decided to continue to include
analysis of both rulemakings in the same EIS due to the interrelated
nature of their effects, and the draft EIS, entitled OSM-EIS-29, was
issued on April 19, 1991. The comment period on the draft EIS closed on
October 16, 1991.
As a result of prior scoping meetings and the publication of the
draft EIS, OSM has received numerous comments on both the scope of the
analysis and the alternatives considered in the draft EIS. However, the
public is again invited to submit comments on the scope of the
analysis, the assumptions and scope of data relating to the analysis,
and the issues and alternatives to be analyzed in the revised draft
EIS. OSM would like to emphasize that comments received on the previous
draft EIS are being considered and need not be re-submitted. OSM staff
will be available to meet with interested persons upon request to
discuss the scope of the revised draft EIS. Since the meetings will be
informal, OSM will not be using a court reporter and would appreciate
receiving, if possible, a written copy of the comments they intend to
present at the meeting.
Alternatives Considered
The alternatives considered in the April 1991 draft EIS are listed
below. It is possible that the number of alternatives actually
considered in the revised draft EIS may be revised as a result of
comments received during scoping, analysis of comments received on
previous drafts, further legal analysis, or further analysis by the
Department. The public is invited to submit any other alternatives that
it believes are reasonable and should be considered.
VER Alternatives
For the definition of VER, the four alternatives considered were:
1. No Action
No Action means that OSM would not promulgate a rule defining VER
and that OSM would continue to make VER determinations consistent with
existing law.
2. Good Faith All Permits Standard
The good faith all permits Standard (GFAP) would require any person
seeking confirmation of VER to show that he had made a good faith
effort to obtain all permits before August 3, 1977, or before the date
the land in question became subject to the prohibitions of section
522(e). It is anticipated that few persons would be able to meet this
test for determining VER.
3. GFAP or Takings Standard
Under this alternative, VER would be found to exist if the person
can demonstrate that he had made a good faith effort to obtain all
permits before August 3, 1977 (or before the date the land became
subject to the prohibitions of section 522(e)), or if denial of VER
would be projected to result in a compensable taking of property.
4. Ownership and Authority Standard
Under the Ownership and Authority (O&A) standard for VER, the
person claiming VER for a surface coal mining operation would have to
demonstrate ownership of the coal and the authority to extract the coal
by the method intended, as determined by the laws of the State in which
the property is located.
Subsidence Alternatives
There were five alternatives in the draft EIS for determining the
degree, if any, to which subsidence resulting from underground coal
mining is subject to the prohibitions of section 522(e) of SMCRA.
Because the Solicitor's Memorandum Opinion M-36971 advised that the
best reading of SMCRA is that the prohibitions of section 522(e) do not
apply to subsidence resulting from underground coal mining, OSM is
considering this opinion and will consult further with the Solicitor on
this issue. OSM anticipates including in the revised draft EIS the five
alternatives which were analyzed in the April 1991 draft EIS.
OSM intends to ensure that, whatever rule is proposed and adopted,
the impacts of that alternative will already have been analyzed.
Therefore, it would not be necessary to again undertake the time
consuming and expensive task of preparing another EIS. The alternatives
in the April 1991 draft EIS were.
1. No Action
Under this alternative, OSM would not promulgate new rules to
clarify whether subsidence is subject to the prohibitions of section
522(e). The determination of the applicability of the prohibitions to
subsidence would continue to be made by OSM and the States pursuant to
the applicable approved regulatory programs.
2. No Mining Standard
Underground extraction would be considered subject to the
prohibitions of section 522(e). Because virtually all underground
mining may eventually result in subsidence, all underground extraction
would be prohibited within the 522(e) areas. Depending on the angle of
draw and depth of seam characteristics, some extraction of coal outside
the protected areas might also be prohibited if it would be expected to
cause subsidence within the protected areas.
3. No Subsidence Standard
Subsidence would be considered prohibited by section 522(e). Mining
operations that would be expected to cause subsidence within the
section 522(e) areas in the reasonably foreseeable future would be
subject to the prohibitions of section 522(e).
4. No Material Damage Standard
Subsidence that would be expected to cause material damage would be
considered subject to the prohibitions of section 522(e). Unless an
operator can demonstrate that underground mining would not reasonably
be expected to result in subsidence that causes material damage such as
functional impairment to protected surface features, structures, or
facilities, underground mining would be prohibited in the section
522(e) areas.
5. Prohibitions Do Not Apply Standard
Subsidence would not be considered subject to the prohibitions of
section 522(e). Restrictions set forth in section 515 of SMCRA and the
implementing regulations in 30 CFR part 817 would still apply. Surface
activities and facilities related to underground coal mining would
continue to be prohibited in the 522(e) areas.
Considerations
The proposed Federal actions would be programmatic national
rulemaking that would clarify the meaning of statutory prohibitions,
but would neither allow nor prohibit mining in any site-specific case.
Therefore, the analysis in the revised draft EIS will be programmatic
in nature rather than site-specific. OSM anticipates including a
generic discussion of the impacts that could be expected to result from
various types of surface and underground coal mining activities should
they occur in each of the protected areas, 522(e)(1)-(5).
Dated: April 19, 1994.
Brent Wahlquist,
Assistant Director, Reclamation and Regulatory Policy.
[FR Doc. 94-9966 Filed 4-26-94; 8:45 am]
BILLING CODE 4310-05-M
