COALEX State Inquiry Report - 310
January, 1995

Rod Richardson
Bureau of Mine Reclamation
Department of Natural Resources
402 W. Washington St.
Indianapolis, Indiana 46204-27648

TOPIC: POSTMINING LAND USE CHANGE - SURFACE MINING

INQUIRY: Must all postmining land use changes be considered "significant alterations" which
require the full blown permit review process? Can a postmining land use change for a surface
mining operation which involves under 5% of the permitted area be considered a minor change?
OSM's interpretive rule of October 1, 1980 (45 FR 64908) applies to underground mines. Is there
any material that discusses this issue with regard to surface mines? 

SEARCH RESULTS: Research was conducted using prior COALEX Reports, the COALEX Library and
other materials available in LEXIS. The materials identified indicate that all alterations to the
original permit require a permit revision; however, it is the regulatory authorities that determine
which revisions are "significant", are subject to a full blown permit review, and which revisions are 
"nonsignificant", subject to a simpler review procedure. For some states, land use changes are
always considered "significant, in that the changes are subject to full blown permit review
procedures.

  Copies of the October 1, 1980 interpretive rule, relevant COALEX Reports, federal regulatory and
OSM directives listed below are attached.

~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~

45 FR 64908 (OCTOBER 1, 1980). Final interpretive rule.
  "The Office of Surface Mining is providing an interpretation of 30 CFR 784.15 and 817.133 to
clarify OSM's position that an operator of a long duration underground coal mining operation may
apply for approval of an alternative post-mining land use through the permit revision procedures of
30 CFR 788.12 [now 30 CFR 774.13] toward the end of the mine life rather than initial permit
application."


COALEX STATE INQUIRY REPORT - 165, "Permit revisions; incidental boundary revisions" (March,
1991).
  This Report provides information on legislative history, regulatory history and state regulations of
incidental boundary revisions (IBRs) from prior Reports; OSM Directives and Federal Register
preambles discussing OSM rational for approving or disapproving state IBR requirements;
administrative and state decisions indicating situations were IBRs or revised permits were required;
and a survey of eleven IMCC member states providing information on state regulations and their
implementation.


COALEX STATE COMPARISON REPORT - 228, "Incidental boundary revisions and insignificant
permit revisions." (August, 1992).
  Part of this Report included a survey of nine IMCC member states asking if land use changes were
allowed via the insignificant permit revisions process and, if so, under what criteria they were
allowed.

  There was no uniformity among the states on this issue. Some allowed land use changes if they
were "nonsignificant", as defined by state program guidelines, while other states always required
public notice and other "full blown" review provisions for land use changes.


REGULATORY HISTORY
44 FR 14902 (MARCH 13, 1979). Permanent program final preamble -- final rules. Sec. 788.12
Permit revisions. [Now 774.13)]
  A commenter suggested that a permit revision be required only for "substantial" changes that
would constitute a significant departure from the methods of mining or reclamation contemplated
by the original permit. OSM modified the language in the final rule to provide the regulatory
authorities with "parameters in their regulations to determine what changes in the methods of
operations or reclamation constitute a significant departure from those approved in the original
permit and, therefore, necessitate a revision."

  Another commenter's request for the inclusion of a definition for the term "significant alteration"
was rejected. OSM stated that the language of the regulation closely tracked that of the Act which
"requires that revision or modification of a permit required by the regulatory authority (based on
written findings) be subject to notice and hearing requirements established by the State or Federal
program." 


48 FR 44344 at 44377 (SEPTEMBER 28, 1983). Final rule. (Renumbering of sections.)  Sec. 774.13
Permit revisions.
  "The final rule allows the permittee to apply for both significant and insignificant permit revisions,
but also requires...that the regulatory authority set guidelines establishing the scale or extent of
'significant revisions'." Significant revisions must meet all the permit application requirements;
nonsignificant revisions are subject only to review procedures.

  OSM added: "The final rule changes the concept of the previous rule which required permit
revisions only for 'significant departures' from the original permit. It was not the intent of the
previous rule to allow the operator to violate the terms of the existing permit so long as the
departure was not 'significant'."


51 FR 21574 (JUNE 13, 1986). Notice of availability of a petition to initiate rulemaking and request
for comments. Guidelines for significant revisions. And 52 FR 6827 (March 5, 1987). Notice of
decision on rulemaking petition.
  The OSM director granted the petition for the federal program for Tennessee which requested
that the regulatory authority establish guidelines for determining when a proposed revision to a
permit is considered "significant". The petition included a request that any change in postmining
land uses be considered significant.

  The OSM guidelines drafted in 1985, proposed specific criteria for significant revisions. Generally
the changes involved environmental issues, e.g., changes in land use from nonindustrial or
noncommercial to industrial or commercial. 

 
59 FR 27932 (MAY 27, 1994). Final rule. Land use information.
  The revised regulations concerning premining and postmining land use information that must be
submitted in a permit application is included here for background.  


OTHER OSM MATERIAL
OSM DIRECTIVE, Subject No. REG-21, Transmittal No. 398, "Findings and Determinations for
Revisions and Renewals of Federal Permits" (1987).
  Minor permit revision. "In most cases, a minor permit revision does not alter the original
environmental document findings."


OSM DIRECTIVE, Subject No. TSR-5, Transmittal No. 399, "Alternative Postmining Land Use
Requirements for Real Property" (1987
  "Any changes to the postmining land use should be approved during the permitting process or as
a revision to the permit."


ATTACHMENTS
1.   45 FR 64908 (OCTOBER 1, 1980). Final interpretive rule.
2.   COALEX STATE INQUIRY REPORT - 165, "Permit revisions; incidental boundary revisions"
     (March, 1991).
     A.   OSM DIRECTIVE, Subject No REG-19, Transmittal No 387, "Incidental Boundary
          Revisions" (October 19, 1987).
     B.   OSM DIRECTIVE, Subject No REG-21, Transmittal No 398, "Findings and
          Determinations for Revisions and Renewals of Federal Permits" (November 10,
          1987).
     C.   COALEX STATE INQUIRY REPORT - 34, "Incidental boundary revision" (1985).
          A.   S Rep No 402, 93rd Cong, 1st Sess 57 (1973). [Excerpt]
          B.   S Rep No 128, 95th Cong, 1st Sess 79-80 (1977). [Excerpt]
          C.   48 FR 44376-78 (September 28, 1983). Sec. 774.13 Permit revisions.
               [Excerpt]
          D.   Kentucky Administrative Regulations, 405 KAR 8:010 Sec. 20 Permit
               Revisions. [Excerpts]
          E.   Illinois Coal Mining Regulations. Parts 1711, 1786, 1787 and 1788.
               [Excerpts]
          F.   West Virginia Surface Mining Reclamation Regs. Sec. 7D, IBRs; West Virginia
               Surface Coal Mining and Reclamation Act, Article 6, Sec. 20-6-19 Permit
               Revision. [Excerpts]
          G.   Annotated Code of Maryland, Sec. 7-505 (1979). Code of Maryland
               Regulations Sec. 08.13.09.08. [Excerpts]
          H.   Wyoming Environmental Quality Act, Sec. 35-11-402. Land Quality Div. of
               the Dept. of Environmental Quality Regs., Sec. 6 (1980). [Excerpts]
          I.   North Dakota Admin. Code, Sec. 69-05.2-11-02 Permit Revisions. [Excerpt]
          J.   Colorado Surface Coal Mining Reclamation Act, Sec. 34-33-103. Colorado
               Surface Coal Mining Reclamation Regs., Sec. 2.08.4 (1982).
     D.   COALEX STATE INQUIRY REPORT - 118, "Major/minor permit revisions" (1989).
          A.   SMCRA Sec. 511.
          B.   30 CFR 774.13 Permit Revisions.
          C.   Indiana Regulations and Statutes
          D.   Tennessee Regulations and Statutes
          E.   West Virginia Regulations and Statutes
          F.   Montana Regulations and Statutes
          G.   Wyoming Regulations and Statutes
     E.   Illinois:      53 FR 43112 (October 25, 1988) [Excerpts]
     F.   Indiana:  51 FR 17478 (May 13, 1986) [Excerpts]
     G.   Iowa:          51 FR 17176 (May 9, 1986) [Excerpts]
     H.   Kentucky:
          1.   55 FR 46054 (November 1, 1990)
          2.   55 FR 24113 (June 14, 1990) [Excerpts]
          3.   48 FR 21574 (May 13, 1983) [Excerpts]
          4.   48 FR 22711 (May 20, 1983) [Excerpts]
     I.   Ohio:          52 FR 26959 (July 17, 1987) [Excerpts]
     J.   Tennessee:     53 FR 49104 (December 5, 1988) 
     K.   West Virginia: 
          1.   55 FR 23703 (June 12, 1990) [Excerpts]
          2.   55 FR 21304 (May 23, 1990) [Excerpts]
          3.   54 FR 16136 (April 21, 1989) [Excerpts]
     L.   TURNER BROTHERS, INC. (TBI) v OSM, Docket No. TU 6-51-R (1987).
     M.   ROCKY COAL CO., INC. v OSM, Docket No. NX 7-90-R (1987).
     N.   MULLINS COAL CO., INC. v OSM, Docket Nos. NX 5-29-R, NX 5-41-R (August 23,
          1985).
     O.   ISLAND CREEK COAL CO. v OSM), Docket Nos. NX 9-106-R, NX 0-35-P (1981).
     P.   KOCHER COAL CO. v COMMONWEALTH OF PENN., DEPT. OF ENVIRONMENTAL
          RESOURCES (DER), EHB Docket No. 82-073-W (1986).
     Q.   ROCKWOOD INSURANCE CO. (BLUE COAL CO.) AND ROCKWOOD INSURANCE CO.
          (NORTHWEST MINING CO.) v COMMONWEALTH OF PENN., DPET. OF
          ENVIRONMENTAL RESOURCES (DER), 1981 EHB 424, Docket Nos. 78-168-S, 78-166-S (1981).
     R.   OOTEN v FAERBER, COMMISSIONER, W. VA. DEPT. OF ENERGY, AND MAGNET
          COAL, INC., 383 SE 2d 774 (W Va 1989).
3.   COALEX STATE COMPARISON REPORT - 228, "Incidental boundary revisions and
     insignificant permit revisions." (August, 1992).
     A.   Alabama:
          1.   Memorandum from Randall C. Johnson, Director, Alabama Surface Mining
               Commission, "Revised Guidelines for Revisions" (1987).
          2.   Rules of Alabama Surface Mining Commission, Sec. 880-X-8M-.06 (1982).
               Permit revisions.
     B.   Indiana:
          1.   310 IAC 12-3-121 (1986). Permit revisions; revisions and renewals, etc.
          2.   310 IAC 12-3-82 (1982). Postmining land use.
     C.   Kentucky:
          1. KRS Ann. Sec. 350.070 (Baldwin)(1991). Permit revisions.
          2.   405 KAR 8:010, Sec. 20 (1991). Permit revisions.
     D.   Maryland: COMAR 08.13.09.08 (1980). Permit review and transfer of permit rights.
     E.   Ohio:
          1.   Ohio Admin. Code 1501:13-4-06 (1986). Permit applications, revisions and
               renewals, etc.
          2.   Ohio Admin. code 1501: 13-9-17 (1982). Postmining use of land.
     F.   Pennsylvania:
          1.   Current Policy Guidelines, "Insignificant Boundary Corrections for Surface
               Mining Activities", Sec. II:02:03:1 (1986).
          2.   PADER Coal Mining Regulations, Sec. 86.54 (1989). Public notice of permit
               revision.
     G.   Texas: Railroad Commission of Texas, Surface Coal Mining Regulations, Sec.
          051.07.04.226 (1979). Permit revisions.
     H.   Virginia:
          1.   Memorandum from Danny R. Brown, Commissioner, Division of Mined Land
               Reclamation, "Incidental Boundary Revision/Insignificant Permit Revision"
               (1992).
          2.   Virginia Surface Mining Regulations, Sec. 480-03-19.774.13 (1985). Permit
               revisions.
     I.   West Virginia:
          1.   West Virginia Surface Mining Regulations, Sec. 38-2-3 (1990). Incidental
               boundary revisions.
          2.   West Virginia Surface Mining Regulations, Sec. 38-2-7 (1986). Criteria for
               approving alternative postmining use of land.
          3.   West Virginia Surface Mining Regulations, Sec. 38-2-3  (1986). Permit
               revisions.
          4.   West Virginia Surface Mining Regulations, "Addendum to Permit or
               Significant Revision of a Permit".
     J.   OSM DIRECTIVE, Subject No. REG-19, Transmittal No. 397, "Incidental Boundary
          Revisions" (1987).
     K.   OSM DIRECTIVE, Subject No. REG-21, Transmittal No. 398, "Findings and
          Determinations for Revisions and Renewals of Federal Permits" (1987).
     L.   Copies of survey conducted by IMCC for COALEX REPORT - 165.
     M.   COALEX STATE INQUIRY REPORT - 165, "Permit revisions; incidental boundary
          revisions" (1991). [ONLY SURVEY RESPONSES INCLUDED - SEE ABOVE]
4.   44 FR 14902 (MARCH 13, 1979). Permanent program final preamble -- final rules. Sec.
     788.12 Permit revisions. [Now 774.13)]
5.   48 FR 44344 at 44377 (SEPTEMBER 28, 1983). Final rule. (Renumbering of sections.)  Sec.
     774.13 Permit revisions.
6.   51 FR 21574 (JUNE 13, 1986). Notice of availability of a petition to initiate rulemaking and
     request for comments. Guidelines for significant revisions. 
7.   52 FR 6827 (MARCH 5, 1987). Notice of decision on rulemaking petition.
8.   59 FR 27932 (MAY 27, 1994). Final rule. Land use information.
9.   OSM DIRECTIVE, Subject No. REG-21, Transmittal No. 398, "Findings and Determinations
     for Revisions and Renewals of Federal Permits" (1987).
10.  OSM DIRECTIVE, Subject No. TSR-5, Transmittal No. 399, "Alternative Postmining Land Use
     Requirements for Real Property" (1987).


Research conducted by: Joyce Zweben Scall