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MEMORANDUM OF UNDERSTANDING AMONG THE 

U.S. DEPARTMENT OF THE ARMY, 

U.S. DEPARTMENT OF THE INTERIOR, 

AND U.S. ENVIRONMENTAL PROTECTION AGENCY 

IMPLEMENTING THE INTERAGENCY ACTION PLAN ON APPALACHIAN 

SURFACE COAL MINING1

JUNE 11, 2009 

PREAMBLE 

The mountains of Appalachia possess unique biological diversity, forests, and freshwater 

streams that historically have sustained rich and vibrant American communities. These 

mountains also contain some of the nation’s richest deposits of coal, which have been mined by 

generations of Americans to provide heat and electricity to millions in the U.S. and around the 

world. After generations of mining, however, the region’s most readily available coal resources 

have diminished, and the remaining coal seams are less accessible to non-surface mining 

methods. 

In response, a surface mining technique commonly referred to as “mountaintop mining”2

has become increasingly prevalent in the Appalachian region. Although its scale and efficiency 

has enabled the mining of once-inaccessible coal seams, this mining practice often stresses the 

natural environment and impacts the health and welfare of surrounding human communities. 

Streams once used for swimming, fishing, and drinking water have been adversely impacted, and 

groundwater resources used for drinking water have been contaminated. Some forest lands that 

sustain water quality and habitat and contribute to the Appalachian way of life have been 

fragmented or lost. These negative impacts are likely to further increase as mines transition to 

less accessible coal resources within already affected watersheds and communities. 

With this Memorandum of Understanding (MOU), the Department of the Interior (DOI), 

U.S. Environmental Protection Agency (EPA), and the U.S. Army Corps of Engineers (Corps) 

 

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 For purposes of this MOU, “Appalachian surface coal mining” refers to mining techniques requiring permits under 

both the Surface Mining Control and Reclamation Act (SMCRA) and Section 404 of the Clean Water Act (CWA), 

in the states of Kentucky, Ohio, Pennsylvania, Tennessee, Virginia, and West Virginia. 

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 The term “mountaintop mining” may also be referred to as “mountaintop removal” or “valley fill mining.” 
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are announcing this Interagency Action Plan (IAP) designed to significantly reduce the harmful 

environmental consequences of Appalachian surface coal mining operations, while ensuring that 

future mining remains consistent with federal law. This IAP includes a set of short-term actions 

to be implemented in 2009 to existing policy and guidance, and a longer term process for 

gathering public input, assessing the effectiveness of current policy, and developing regulatory 

actions. 

The Federal government has made a commitment to move America toward a 21st-century clean 

energy economy based on the recognition that a sustainable economy and environment must 

work hand in hand. Federal Agencies will work in coordination with appropriate regional, state, 

and local entities to help diversify and strengthen the Appalachian regional economy and 

promote the health and welfare of Appalachian communities. This interagency effort will have a 

special focus on stimulating clean enterprise and green jobs development, encouraging better 

coordination among existing federal efforts, and supporting innovative new ideas and initiatives. 

 

Interagency Action Plan 

I. COORDINATION ON REGULATORY PROGRAMS 

This MOU formalizes the agencies’ IAP for coordinating the regulation of Appalachian 

surface coal mining. The elements of the plan are: 

 A series of interim actions under existing authorities to minimize the adverse 

environmental consequences of Appalachian surface coal mining; 

 A commitment by the agencies to investigate and, if appropriate, undertake longer 

term regulatory actions related to Appalachian surface coal mining; 

 Coordinated environmental reviews of pending permit applications under the Clean 

Water Act (CWA) and Surface Mining Control and Reclamation Act (SMCRA); and 

 A commitment to engage in robust public participation, through public comment 

mechanisms and Appalachian public outreach events, helping to inform Federal, 

State, and local decisions. 

In addition to the steps taken above, the Federal government will help diversify and 

strengthen the Appalachian regional economy. This effort will include the agencies to this 

MOU, and other Federal agencies, as appropriate, and will work to focus clean energy 

investments and create green jobs in Appalachia. 

Coordination of interagency policy discussions and assessment of policy effectiveness will 

be achieved in consultation with the Council on Environmental Quality. 
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II. SHORT-TERM ACTIONS TO MINIMIZE ENVIRONMENTAL HARM 

The signatory agencies will take the following short-term actions under existing laws, 

regulations, and other authorities to reduce the harmful environmental consequences of 

Appalachian surface coal mining. 

Before the end of 2009, the Corps and EPA will take the following steps: 

 Within 30 days of the date of this MOU, the Corps will issue a public notice pursuant 

to 33 C.F.R. § 330.5 proposing to modify Nationwide Permit (NWP) 21 to preclude 

its use to authorize the discharge of fill material into streams for surface coal mining 

activities in the Appalachian region, and will seek public comment on the proposed 

action. 

 EPA and the Corps, in coordination with DOI’s Fish and Wildlife Service (FWS), 

will jointly develop guidance to strengthen the environmental review of proposed 

surface coal mining projects in Appalachia under the CWA Section 404(b)(1) 

Guidelines. 

 Recognizing that the regulation of surface coal mining extends beyond CWA Section 

404, EPA will improve and strengthen oversight and review of water pollution 

permits for discharges from valley fills under CWA Section 402, and of state water 

quality certifications under CWA Section 401, by taking appropriate steps to assist 

the States to strengthen state regulation, enforcement, and permitting of surface 

mining operations under these programs. 

 The Corps and EPA, in coordination with FWS and consistent with the agencies’ 

regulations governing compensatory mitigation, will jointly issue guidance clarifying 

how impacts to streams should be evaluated and how to evaluate proposed mitigation 

projects to improve the ecological performance of such mitigation implemented to 

compensate for losses of waters of the United States authorized by Section 404 

permits. 

 EPA, in coordination with the Corps, will clarify the applicability of the CWA waste 

treatment exemption for treatment facilities constructed in waters of the United States 

in order to minimize the temporary impacts of mining operations on streams. 

Before the end of 2009, DOI will take the following steps: 

 If the 2008 Stream Buffer Zone Rule is vacated by the U.S. District Court for the 

District of Columbia in Coal River Mountain Watch et al v. Kempthorne, 1:08-cv02212-HHK C, as requested by the Secretary of the Interior on April 27, 2009, the 

Office of Surface Mining Reclamation and Enforcement (OSM) will issue guidance 

clarifying the application of the 1983 stream buffer zone provisions to further reduce 

adverse stream impacts. 

 OSM will reevaluate and determine how it will more effectively conduct oversight of 

State permitting, State enforcement, and regulatory activities under SMCRA. 

 OSM will remove impediments to its ability to require correction of permit defects in 

SMCRA primacy states. 
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III. DEVELOPMENT OF LONGER TERM REGULATORY ACTIONS TO BETTER 

MANAGE APPALACHIAN SURFACE COAL MINING 

A. OBJECTIVES 

The signatory agencies will review their existing regulatory authorities and 

procedures to determine whether regulatory modifications should be proposed to 

better protect the environment and public health from the impacts of Appalachian 

surface coal mining. At a minimum, the agencies will consider: 

 Revisions to key provisions of current SMCRA regulations, including the 

Stream Buffer Zone Rule and Approximate Original Contour (AOC) 

requirements; 

 Eliminating use of Nationwide Permit 21 in connection with surface coal 

mining in the Appalachian region when the Nationwide Permit Program is 

reauthorized in 2012; and 

 Revisions to how surface coal mining activities are evaluated, authorized, and 

regulated under the CWA. 

B. PROCESS 

The signatory agencies will create an interagency working group to coordinate the 

development of short-term actions, longer term regulatory actions, and coordination 

procedures for Appalachian surface coal mining. The group will ensure robust public 

involvement in the development of any proposed actions or regulatory reforms. 

For any proposed regulatory revision or other action under this MOU that is a major 

federal action significantly affecting the quality of the human environment (and is an 

action subject to NEPA), an Environmental Impact Statement (EIS) will be prepared 

to inform the decision-making process. At an early stage in the interagency 

coordination process, the working group will determine whether coordinating these 

NEPA processes programmatically would more effectively guide regulatory 

development and decision-making. The interagency group will coordinate with CEQ 

regarding the implementation of the National Environmental Policy Act (NEPA) in 

the development of regulatory reforms. 

IV. INTERIM INTERAGENCY COORDINATION PROCEDURES 

A. Clean Water Act 

EPA and the Corps will begin immediately to implement enhanced coordination 

procedures applicable to the Clean Water Act review of Section 404 permit 

applications for Appalachian surface coal mining activities that have been submitted 

prior to execution of this MOU. The goal of these procedures is to ensure more 

timely, consistent, transparent, and environmentally effective review of permit 

applications under existing law and regulations. The agencies are issuing these 
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enhanced joint procedures concurrently with this MOU. Also concurrently, EPA is 

clarifying the factual considerations it is using to evaluate pending CWA permit 

applications under the 404(b)(1) Guidelines. 

Pending Clean Water Act Section 404 permit applications for Appalachian surface 

coal mining activities will continue to be evaluated by the Corps and EPA on a caseby-case basis. The agencies will focus their reviews of Appalachian surface coal 

mining permit applications based on likely environmental impacts with the goal of 

avoiding, minimizing, and mitigating such impacts to the extent practicable under the 

CWA Section 404(b)(1) Guidelines and consistent with NEPA. This approach will 

enable the continued permitting of environmentally responsible projects. 

B. Surface Mining Control and Reclamation Act 

During 2009, OSM will issue guidance concerning appropriate application of the 

Stream Buffer Zone rule and other related rules and will ensure that states are 

implementing their counterpart provisions and SMCRA regulatory programs 

consistent with the guidance. 

V. PUBLIC INVOLVEMENT 

This IAP will be accompanied by robust public comment on its short- and longer term 

actions. The agencies will hold public meetings in Appalachia during 2009 to gather on-theground input and encourage ongoing local engagement in the environmental assessment and 

decision-making process. Additional public participation will occur as agency actions move 

forward. 

VI. GENERAL 

A. The policy and procedures contained within this MOU are intended solely as guidance 

and do not create any rights, substantive or procedural, enforceable by any party. This MOU 

does not constitute final agency action on any issue, and any actions contemplated by this 

MOU will be carried out in an appropriate administrative process by the action agency in 

accordance with all applicable laws and regulations. 

B. This document does not, and is not intended to, impose any legally binding requirements 

on Federal agencies, States, or the regulated public, and does not restrict the authority of the 

employees of the signatory agencies to exercise their discretion in each case to make 

regulatory decisions based on their judgment about the specific facts and application of 

relevant statutes and regulations. 

C. Nothing in this MOU is intended to diminish, modify, or otherwise affect statutory or 

regulatory authorities of any of the signatory agencies. All formal guidance interpreting this 
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MOU and background materials upon which this MOU is based will be issued jointly by the 

appropriate agencies. 

D. Nothing in this MOU will be construed as indicating a financial commitment by DOI, the 

Corps, EPA, or any cooperating State agency for the expenditure of funds except as 

authorized in specific appropriations. 

E. This MOU will take effect on the date shown above and will continue in effect until 

permanent procedures are established, or unless earlier modified or revoked by agreement of 

all signatory agencies. Modifications to this MOU may be made by mutual agreement of all 

the signatory agencies. Modifications to the MOU must be made in writing. 

Signed, 

_________________________________ _________________________________ 

Lisa P. Jackson Ken Salazar 

Administrator Secretary 

U.S. Environmental Protection Agency U.S. Department of the Interior 

_________________________________ 

Terrence “Rock” Salt 

Acting Assistant Secretary 

 of the Army (Civil Works) 

U.S. Department of the Army