Secretary of Labor v. Vulcan Construction Materials, LLC

Plain-English summary

Vulcan Construction Materials asked to reopen a penalty assessment that became final when it did not file a contest within 30 days. The assessment went to the correct address, but Vulcan had no record of receiving it and the delivery confirmation identified only "V Construction." Vulcan filed its motion on the same day it received MSHA's delinquency notice. The Secretary did not oppose reopening. The Commission found good cause and prompt good-faith action, reopened the assessment, and remanded it for further proceedings.

Decision snapshot

• Cited authority: 30 U.S.C. § 815(a); 29 C.F.R. §§ 2700.1(b) and 2700.28
• Outcome: The assessment was reopened and remanded to the Chief Administrative Law Judge.
• Key point: An unclear delivery confirmation paired with immediate action after a delinquency notice can establish good cause to reopen a final assessment.

Full text (FMSHRC public release)

FEDERAL
MINE SAFETY AND HEALTH REVIEW COMMISSION

1331
PENNSYLVANIA AVE., N.W., SUITE 520N

WASHINGTON,
DC 20004-1710

SECRETARY
OF LABOR,

MINE
SAFETY AND HEALTH       

ADMINISTRATION
(MSHA)           

v.

VULCAN
CONSTRUCTION  

MATERIALS,
LLC

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:

:

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Docket
No. SE 2023-0043

A.C.
No. 31-01258-561300

BEFORE: 
Jordan, Chair; Althen, Rajkovich, and Baker, Commissioners

ORDER

BY THE COMMISSION:

This
matter arises under the Federal Mine Safety and Health Act of 1977, 30 U.S.C. §
801 et seq. (2018) (“Mine Act”). On November 29, 2022, the Commission received
from Vulcan Construction Materials, LLC (“Vulcan Construction”) a motion
seeking to reopen a penalty assessment that had become a final order of the
Commission pursuant to section 105(a) of the Mine Act, 30 U.S.C. § 815(a).

Under
section 105(a) of the Mine Act, an operator who wishes to contest a proposed
penalty must notify the Secretary of Labor no later than 30 days after
receiving the proposed penalty assessment. If the operator fails to notify the
Secretary, the proposed penalty assessment is deemed a final order of the
Commission. 30 U.S.C. § 815(a).

We
have held, however, that in appropriate circumstances, we possess jurisdiction to reopen uncontested
assessments that have become final Commission orders under section 105(a). Jim
Walter Res., Inc., 15 FMSHRC 782, 786-89 (May 1993) (“ JWR ”). In
evaluating requests to reopen final orders, the Commission has found guidance
in Rule 60(b) of the Federal Rules of Civil Procedure, under which the
Commission may relieve a party from a final order of the Commission on the
basis of mistake, inadvertence, excusable neglect, or other reason justifying
relief. See 29 C.F.R. § 2700.1(b) (“the Commission and its Judges shall
be guided so far as practicable by the Federal Rules of Civil Procedure”); JWR ,
15 FMSHRC at 787. We have also observed that default is a harsh remedy and
that, if the defaulting party can make a showing of good cause for a failure to timely respond, the case may be
reopened and appropriate proceedings on the merits permitted. See Coal Prep.
Servs., Inc., 17 FMSHRC 1529, 1530 (Sept. 1995).

Records
of the Department of Labor’s Mine Safety and Health Administration (“MSHA”)
indicate the proposed assessment was delivered to the operator via U.S. Postal
Service on August 29, 2022. On September 28, 2022, the proposed assessment was
deemed a final order of the Commission because the operator had not filed a
Notice of Contest within 30 days. On November 29, 2022, MSHA mailed a
delinquency notice to the operator.

Vulcan
Construction does not dispute that the assessment was mailed to the correct
address. However, Vulcan Construction has no record of receiving the
assessment. The operator asserts that the signature block on USPS’ delivery
confirmation simply noted “V Construction,” therefore it cannot be certain who,
if anyone, received the assessment. The exact method of delivery confirmation
is unclear. The Secretary of Labor does not oppose the request to reopen.

We note that the motion to reopen was
timely filed. The Commission has previously held
that “[m]otions to reopen received within 30 days of an operator’s receipt of
its first notice from MSHA that it has failed to timely file a notice of
contest will be presumptively considered as having been filed within a
reasonable amount of time.” Highland Mining Co., 31 FMSHRC 1313, 1316-17
(Nov. 2009). Here, the motion to reopen was filed on November 29, 2022,
the same day the operator received the delinquency notification. Therefore, the
motion was filed within a reasonable amount of time.

Having
reviewed Vulcan Construction’s request and the
Secretary’s response, we find that the operator has demonstrated good
cause for its failure to timely respond and acted in good faith by timely
filing its request to reopen. We also recognize that mail delivery was affected
by the unprecedented strain of the COVID 19 pandemic during the relevant
timeframe. In the interest of justice, we hereby
reopen this matter and remand it to the Chief Administrative Law Judge for
further proceedings pursuant to the Mine Act and the Commission’s Procedural
Rules,

29 C.F.R. Part 2700. Accordingly, consistent with Rule 28, the
Secretary shall file a petition for assessment of penalty within 45 days of the
date of this order. See 29 C.F.R. § 2700.28.

/s/
Mary Lu Jordan

Mary Lu Jordan,
Chair

/s/ William I.
Althen

William I. Althen,
Commissioner

/s/ Marco M. Rajkovich,
Jr.

Marco M.
Rajkovich, Jr., Commissioner

/s/ Timothy J.
Baker

Timothy J. Baker,
Commissioner

Distribution:

Bryan
Moore

Safety
& Health Manager

Vulcan
Construction Materials, LLC

1090
Moore Farms Drive

China
Grove, NC 28023

[email protected]

April
Nelson, Esq.

Associate
Solicitor

Office
of the Solicitor

U.S.
Department of Labor

Division
of Mine Safety and Health

201
12th Street South, Suite 401

Arlington,
VA 22202

[email protected]

Emily
Toler Scott, Esq.

Counsel
for Appellate Litigation

Office
of the Solicitor

U.S.
Department of Labor

Division
of Mine Safety and Health

201
12th Street South, Suite 401

Arlington,
VA 22202

[email protected]

Melanie
Garris

USDOL/MSHA,
OAASEI/CPCO

201
12th Street South, Suite 401

Arlington,
VA 22202

[email protected]

Chief
Administrative Law Judge Glynn F. Voisin

Office
of the Chief Administrative Law Judge

Federal
Mine Safety Health Review Commission

1331
Pennsylvania Avenue, NW Suite 520N

Washington,
DC 20004-1710

[email protected]