Opinion ID: 3011662
Heading Depth: 2
Heading Rank: 2

Heading: termination of consulta tion

Text: FAST also challenges the manner in which the STB terminated the regulatory consultation. After declining to reconsider FAST's request to expand the historic condition and protect the entire rail line, the STB unilaterally terminated consultation on mitigation, unilaterally terminated the entire S 106 pr ocess, and imposed the terms of the unexecuted MOA, finding that it constitutes appropriate historic mitigation for the bridges at issue. 28 The terms of the MOA were established following negotiations among the STB, Conrail, and the SHPO; all three agreed to terms, including r ecordation of five bridges, funding of the film, transfer of certain bridge pr operties to local municipalities, and payment of money by Conrail for upkeep of those bridges. However, the SHPO declined to sign the MOA, citing the ACHP's desire to consult in the process. At that point, the STB was requir ed to invite the ACHP formally to participate in the consultation, and, if the ACHP declined to consult, to obtain the ACHP's comments on the undertaking and on the proposed mitigation plan. See 36 C.F.R. SS 800.6(b)(1)(v), 800.7(c)(2). The STB did submit a copy of the MOA to the ACHP for comment and approval; the ACHP expressly declined to comment on the MOA or the mitigation plan, focusing its comments instead on what it found to be deficiencies in the S 106 process generally and the need to reconsider identification. The STB certainly has the power to declare consultation at an impasse and to terminate, if it finds that further consultation would not be productive. See 36 C.F.R. S 800.7(a). However, the applicable r egulations require that, if the STB does terminate consultation, it must give notice of that termination to the ACHP, see 36 C.F.R. S 800.7(a)(1); allow 45 days for ACHP comments on termination, see 36 C.F.R. S 800.7(c)(2); and take those comments into account, giving them genuine attention and consideration, in terminating consultation and reaching afinal decision. See 36 C.F.R. S 800.7(c)(4). Only after r eceipt and consideration of those comments may the STB complete the ter mination of the process and implement a mitigation plan, provided that it expressly take such comments into account in rendering that final decision. See Concer ned Citizens, 176 F.3d at 696. The STB did not meet these r equirements for termination. We can understand the impatience of the STB to resolve this expedited abandonment. Nevertheless, when procedures are established by law, those procedures must be followed. Because the STB did not follow the r equired procedures, we conclude that it abused its discretion in implementing the MOA and in terminating the consultation. For these reasons, the 1997 and 1999 Or ders will be vacated and this matter will be remanded to the STB. 29 In determining to vacate and remand this matter, we in no way suggest that FAST is entitled to the r elief it seeks. We take no position as to whether the entir e Enola Branch is eligible for inclusion in the National Register or as to whether there is sufficient evidence of changed perceptions of historical significance or changed circumstances to justify preserving the entire line. W e also take no position as to whether the mitigation plan favored by the STB is proper although we note that the ultimate decision is left to the STB after due consideration of comments fr om interested parties. See Concerned Citizens, 176 F.3d at 696. We also take no position as to whether consultation is at an impasse and whether the process properly should be terminated. We hold only that, on r emand, the STB must conduct the S 106 process in accor dance with the regulations. It must consider the comments and opinions of the Keeper, the ACHP, and other inter ested parties as to the scope of the eligible historic properties and as to a proper mitigation plan. If the STB again decides that further consultation is fruitless and that the S 106 process should be termination, it must follow the procedural track established by the regulations for termination.