98-20468. Kentucky Regulatory Program  

  • [Federal Register Volume 63, Number 147 (Friday, July 31, 1998)]
    [Rules and Regulations]
    [Pages 40825-40827]
    From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
    [FR Doc No: 98-20468]
    
    
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    DEPARTMENT OF THE INTERIOR
    
    Office of Surface Mining Reclamation and Enforcement
    
    30 CFR Part 917
    
    [KY-217-FOR]
    
    
    Kentucky Regulatory Program
    
    AGENCY: Office of Surface Mining Reclamation and Enforcement (OSM), 
    Interior.
    
    ACTION: Final rule; approval of amendment.
    
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    SUMMARY: OSM is approving a proposed amendment to the Kentucky 
    regulatory program (hereinafter referred to as the ``Kentucky 
    program'') under the Surface Mining Control and Reclamation Act of 1977 
    (SMCRA). Kentucky requested the removal of 30 CFR 917.17(a) which 
    disapproved Kentucky's proposed revision to its staffing and budget 
    levels (49 FR 50718, December 31, 1984). The amendment is intended to 
    revise the Kentucky program to be consistent with the Federal 
    regulations and SMCRA.
    
    EFFECTIVE DATE: July 31, 1998.
    
    FOR FURTHER INFORMATION CONTACT:
    William J, Kovacic, Director, Lexington Field Office, 2675 Regency 
    Road, Lexington, Kentucky 40502. Telephone: (606) 233-2494.
    
    SUPPLEMENTARY INFORMATION: 
    I. Background on the Kentucky Program
    II. Submission of the Proposed Amendment
    III. Director's Findings
    IV. Summary and Disposition of Comments
    V. Director's Decision
    VI. Procedural Determinations
    
    I. Background on the Kentucky Program
    
        On May 18, 1982, the Secretary of the Interior conditionally 
    approved the Kentucky program. Background information on the Kentucky 
    program, including the Secretary's findings, the disposition of 
    comments, and the conditions of approval can be found in the May 18, 
    1982 Federal Register (47 FR 21404). Subsequent actions concerning 
    conditions of approval and program amendments can be found at
    
    [[Page 40826]]
    
    30 CFR 917.11, 917.13, 917.15, 917.16, and 917.17.
    
    II. Submission of the Proposed Amendment
    
        By letter dated November 3, 1997 (Administrative Record No. KY-
    1418), Kentucky submitted a proposed amendment to its program pursuant 
    to SMCRA requesting the removal of 30 CFR 917.17(a), which disapproved 
    revisions to its approved staffing and budget levels.
        Specifically, Kentucky requested removal of the requirement that 
    the Kentucky Department for Surface Mining Reclamation and Enforcement 
    (DSMRE) maintain a staffing level of 156 field inspectors. This 
    specific requirement is codified at 30 CFR 917.16(b)(2).
        OSM announced receipt of the proposed amendment in the December 10, 
    1997, Federal Register (62 FR 65044), and in the same document opened 
    the public comment period and provided an opportunity for a public 
    hearing on the adequacy of the proposed amendment. The public comment 
    period closed on January 9, 1998. OSM reopened the comment period on 
    April 27, 1998 (63 FR 20561), because OSM requested and Kentucky 
    subsequently provided certain documents containing evidence that it has 
    sufficient inspection and enforcement staffing levels to regulate 
    mining in accordance with SMCRA. Those documents are: ``Historical 
    Information on Kentucky's Surface Mining Primacy Program,'' compiled by 
    Kentucky, July 1997 (Administrative Record No. KY-1424); ``Review of 
    Current Staffing and Funding Levels,'' prepared by the OSM Lexington 
    Field Office (LFO), December 1997 (Administrative Record No. KY-1420); 
    and ``Inspection Resources Study,'' prepared by OSM and Kentucky, 
    August 1989 (Administrative Record No. KY-1418). The comment period 
    closed on May 12, 1998. OSM reopened the comment period a second time 
    on May 18, 1998 (63 FR 27229).
    
    III. Director's Findings
    
        Set forth below, pursuant to SMCRA and the Federal regulations at 
    30 CFR 732.15 and 732.17, are the Director's findings concerning the 
    proposed amendment.
        Kentucky is requesting the removal of 30 CFR 917.17(a) which 
    disapproved a revision to its approved staffing and budget levels. One 
    effect of the disapproval was that Kentucky was required to maintain a 
    staffing level of 156 field inspectors (49 FR 50718, December 31, 
    1984). In its submission letter dated November 3, 1997, Kentucky 
    provided the following information:
    
    --field inspector staffing levels are no longer based on 1984 
    inspection numbers and budgetary needs,
    --a study pursuant to the settlement agreement between Kentucky and the 
    National Wildlife Federation [National Wildlife Federation v. Miller, 
    No. 86-99 (E.D. Ky. 1986)] determined that a cap of 24 inspectable 
    units per field inspector should be established. See August 1989, 
    ``Inspection Resources Study'' which concluded that 176 inspectors were 
    needed to adequately conduct the monthly and quarterly inspections 
    needed for 4,260 permanent program sites (Administrative Record No. KY-
    1418),
    --OSM has accepted the limits set by the study in determining 
    inspection staff levels as indicated by the approval of Title V 
    administrative and enforcement grants,
    --OSM's annual reports indicate that Kentucky's Title V regulatory 
    program meets high inspection frequency levels. See July 1997, document 
    ``Historical Information on Kentucky's Surface Mining Primacy 
    Program,'' prepared by the Kentucky Natural Resources and Environmental 
    Protection cabinet, DSMRE (Administrative Record No. KY-1424).
    
        Kentucky also asserts that using a fixed number of field inspectors 
    fails to provide the latitude necessary to adapt its inspection force 
    to changing conditions in the coal industry. Further, the number of 
    inspectors Kentucky maintains is based on the current and ever-changing 
    number of inspectable units.
        In December 1997, OSM's LFO prepared a summary of current staffing 
    and funding levels at the DSMRE (Administrative Record No. KY-1420). 
    That summary reported that the number of inspectable units in Kentucky 
    had been steadily declining for several years. Specifically, since the 
    1993 evaluation period, the total number of inspectable units had 
    declined from 3,799 to 2,832. During that same period, the number of 
    inspection and enforcement staff dropped from 156 to 123. However, even 
    with 123 inspectors, the ratio of inspectable units to inspectors stood 
    at 23 units per inspector, as of December 1997. This ratio is actually 
    slightly better than the ratio of 24 units per inspector agreed upon in 
    the settlement in National Wildlife Federation, supra.
        In 1984, when the Director disapproved Kentucky's proposal to 
    reduce its inspection staff below the mandated number of 156, he cited 
    the lack of thorough complete inspections and the failure to 
    consistently cite all violations as the grounds for disapproval (49 FR 
    50720). However, in its December 1997, ``Review of Staffing and Funding 
    Levels,'' LFO reported the DSMRE inspectors had made at least 97 
    percent of all required inspections over the last five evaluation 
    periods, averaging 98.3 percent over that same period. Moreover, LFO 
    found that 76 percent of all mines were in complete compliance with 
    applicable performance standards over the last five years, and that 
    over half of the mines not in full compliance had only one violation 
    per year. Finally, over the last two evaluation periods, only 4 percent 
    and 8 percent of mines, respectively, had violations which caused off 
    site impacts. Thus, LFO concluded, not only are DSMRE's 123 inspectors 
    making an adequate number of inspections, the inspections are also 
    serving as a deterrent to violations (Administrative Record No. KY-
    1420).
        LFO also noted that, while permitting staff had dropped from 52 to 
    38 over the five year period prior to December, 1997, the permitting 
    workload had dropped even faster. Since the 1993 evaluation period, new 
    permit approvals had dropped from 142 per year to 99.
        Therefore, based on the new evidence discussed in the preceding 
    paragraphs, the Director finds that Kentucky has demonstrated that it 
    has sufficient staffing levels to regulate mining in accordance with 
    SMCRA. He finds that the Kentucky program is consistent with the 
    provisions of section 503(a)(3) of SMCRA and is therefore removing the 
    required amendment at 30 CFR 917.16(b), which requires Kentucky to 
    maintain a minimum permanent program staff of 408, including a minimum 
    of 156 inspection and enforcement personnel. The disapproval codified 
    at 30 CFR 917.17(a) is also being removed, since Kentucky will no 
    longer be required to maintain a permanent program staff of 408.
    
    IV. Summary and Disposition of Comments
    
    Public Comments
    
        The Director solicited public comments and provided an opportunity 
    for a public hearing on the proposed amendment submitted on November 3, 
    1997. One comment was received in support of the amendment. The 
    commentor stated that the coal industry has witnessed a dramatic 
    decline in the number of coal mines in Kentucky. To support this 
    statement, the commentor
    
    [[Page 40827]]
    
    also submitted a ``Survey of Active Coal Mining Operations in Kentucky 
    (June 1-July 31, 1997)'' reflecting a total of 353 active mines in the 
    State. By comparison, the number of licensed mines in 1984 was 2,063.
    
    Federal Agency Comments
    
        Pursuant to 30 CFR 732.17(h)(11)(i), the Director solicited 
    comments on the proposed amendment submitted on November 3, 1997, from 
    various Federal agencies with an actual or potential interest in the 
    Kentucky program. No comments were received.
    
    Environmental Protection Agency (EPA)
    
        Pursuant to 30 CFR 732.17(h)(11)(ii), OSM is required to obtain the 
    written concurrence of the EPA with respect to those provisions of the 
    proposed program amendment that relate to air or water quality 
    standards promulgated under the authority of the Clean Water Act (33 
    U.S.C. 1251 et seq.) or the Clean Air Act (42 U.S.C. 7401 et seq.).
        None of the revisions that Kentucky proposed to make in its 
    amendment pertains to air or water quality standards. Therefore, OSM 
    did not request EPA's concurrence.
    
    V. Director's Decision
    
        Based on the above findings, the Director approves the proposed 
    amendment as submitted by Kentucky on November 3, 1997.
        The Federal regulations at 30 CFR Part 917, codifying decisions 
    concerning the Kentucky program, are being amended to implement this 
    decision. This final rule is being made effective immediately to 
    expedite the State program amendment process and to encourage States to 
    bring their programs into conformity with the Federal standards without 
    undue delay. Consistency of State and Federal standards is required by 
    SMCRA.
    
    VI. Procedural Determinations
    
    Executive Order 12866
    
        This rule is exempted from review by the Office of Management and 
    Budget (OMB) under Executive Order 12866 (Regulatory Planning and 
    Review).
    
    Executive Order 12988
    
        The Department of the Interior has conducted the reviews required 
    by section 3 of Executive Order 12988 (Civil Justice Reform) and has 
    determined that, to the extent allowed by law, this rule meets the 
    applicable standards of subsections (a) and (b) of that section. 
    However, these standards are not applicable to the actual language of 
    State regulatory programs and program amendments since each such 
    program is drafted and promulgated by a specific State, not by OSM. 
    Under sections 503 and 505 of SMCRA (30 U.S.C. 1253 and 1255) and 30 
    CFR 730.11, 732.15, and 732.17(h)(10), decisions on proposed State 
    regulatory programs and program amendments submitted by the States must 
    be based solely on a determination of whether the submittal is 
    consistent with SMCRA and its implementing Federal regulations and 
    whether the other requirements of 30 CFR Parts 730, 731, and 732 have 
    been met.
    
    National Environmental Policy Act
    
        No environmental impact statement is required for this rule since 
    section 702(d) of SMCRA (30 U.S.C. 1292(d)) provides that agency 
    decisions on proposed State regulatory program provisions do not 
    constitute major Federal actions within the meaning of section 
    102(2)(C) of the National Environmental Policy Act (42 U.S.C. 
    4332(2)(C)).
    
    Paperwork Reduction Act
    
        This rule does not contain information collection requirements that 
    require approval by OMB under the Paperwork Reduction Act (44 U.S.C. 
    3507 et seq.).
    
    Regulatory Flexibility Act
    
        The Department of the Interior has determined that this rule will 
    not have a significant economic impact on a substantial number of small 
    entities under the Regulatory Flexibility Act (5 U.S.C. 6501 et seq.) 
    The State submittal which is the subject of this rule is based upon 
    corresponding Federal regulations for which an economic analysis was 
    prepared and certification made that such regulations would not have a 
    significant economic effect upon a substantial number of small 
    entities. Accordingly, this rule will ensure that existing requirements 
    previously promulgated by OSM will be implemented by the State. In 
    making the determination as to whether this rule would have a 
    significant economic impact, the Department relied upon the data and 
    assumptions for the corresponding Federal regulations.
    
    Unfunded Mandates
    
        This rule will not impose a cost of $100 million or more in any 
    given year on any governmental entity or the private sector.
    
    List of Subjects in 30 CFR Part 917
    
        Intergovernmental relations, Surface mining, Underground mining.
    
        Dated: July 16, 1998.
    Allen D. Klein,
    Regional Director, Appalachian Regional Coordinating Center.
    
        For the reasons set out in the preamble,Title 30, Chapter VII, 
    Subchapter T of the Code of Federal Regulations is amended as set forth 
    below:
    
    PART 917--KENTUCKY
    
        1. The authority citation for part 917 continues to read as 
    follows:
    
        Authority: 30 U.S.C. 1201 et seq.
    
        2. Section 917.15 is amended in the table by adding a new entry in 
    chronological order by ``Date of Final Publication'' to read as 
    follows:
    
    
    Sec. 917.15  Approval of Kentucky regulatory program amendments.
    
    * * * * *
    
    ------------------------------------------------------------------------
      Original amendment submission      Date of final         Citation/    
                  date                    publication         description   
    ------------------------------------------------------------------------
                                                                            
                      *        *        *        *        *                 
    November 3, 1997................  July 31, 1998.....  Staffing and      
                                                           budget levels.   
    ------------------------------------------------------------------------
    
    Sec. 917.16  [Amended]
    
        3. Section 917.16 is amended by removing and reserving paragraph 
    (b).
    
    
    Sec. 917.17  [Amended]
    
        4. Section 917.16 is amended by removing and reserving paragraph 
    (a).
    [FR Doc. 98-20468 Filed 7-30-98; 8:45 am]
    BILLING CODE 4310-05-M
    
    
    

Document Information

Effective Date:
7/31/1998
Published:
07/31/1998
Department:
Surface Mining Reclamation and Enforcement Office
Entry Type:
Rule
Action:
Final rule; approval of amendment.
Document Number:
98-20468
Dates:
July 31, 1998.
Pages:
40825-40827 (3 pages)
Docket Numbers:
KY-217-FOR
PDF File:
98-20468.pdf
CFR: (3)
30 CFR 917.15
30 CFR 917.16
30 CFR 917.17