Regulatory Comment Letter

REGULATORY COMMENT LETTER — PENNSYLVANIA

Pennsylvania Regulatory Framework Overview

Pennsylvania's rulemaking and regulatory comment process is governed by the Regulatory Review Act (RRA), 71 P.S. 745.1 et seq., and the Commonwealth Documents Law, 45 P.S. 1102 et seq. The Independent Regulatory Review Commission (IRRC), a five-member bipartisan body, provides independent oversight of all agency rulemaking. Proposed and final-form regulations are published in the Pennsylvania Bulletin, and codified regulations appear in the Pennsylvania Code.

Pennsylvania's regulatory review process is distinctive for its multi-layered oversight: agencies must satisfy IRRC review criteria, and the General Assembly's standing committees also have the authority to review and disapprove regulations.

Key Pennsylvania Agencies Accepting Regulatory Comments

• Department of Environmental Protection (DEP) — air quality, water resources, waste management, mining, oil and gas
• Pennsylvania Public Utility Commission (PUC) — electric, gas, water, telecommunications, transportation utilities
• Insurance Department — insurance regulation, managed care
• Department of Health (DOH) — public health, health care facility licensing
• Department of Labor and Industry (L&I) — workplace safety, workers' compensation, wage standards
• Department of Revenue — tax administration
• Department of State — professional licensing (through licensing boards)
• Department of Banking and Securities — financial institution regulation
• Independent Regulatory Review Commission (IRRC) — reviews all agency regulations
• Environmental Quality Board (EQB) — environmental regulations (promulgated through DEP)
• State Board of Education — education regulations

Pennsylvania Rulemaking Process Summary

1. Agency develops proposed regulation and submits to IRRC, standing committees, and OAG (Office of Attorney General)
2. Proposed regulation published in the Pennsylvania Bulletin
3. Public comment period (minimum 30 days)
4. IRRC issues comments within 30 days after close of public comment period
5. Agency reviews all comments and prepares final-form regulation
6. Final-form regulation submitted to IRRC, standing committees, and OAG
7. Standing committees have 20 days to approve or disapprove
8. IRRC has 14 days (after committee action) to approve or disapprove
9. If approved, regulation published in Pennsylvania Bulletin and codified in Pennsylvania Code
10. If disapproved by IRRC, agency may file with General Assembly for override

Type of Regulatory Comment

☐ Comment on Proposed Rulemaking (71 P.S. 745.5)
☐ Comment on Advance Notice of Proposed Rulemaking (ANPRM)
☐ Comment on Final-Form Rulemaking (71 P.S. 745.5a)
☐ Comment on Final-Omitted Rulemaking (71 P.S. 745.5a(d))
☐ Comment on Existing Regulation — Request for Amendment or Repeal
☐ Comment on Agency Guidance Document or Policy Statement
☐ Comment on Agency Enforcement Policy
☐ Comment Submitted to IRRC on Any Pending Regulation
☐ Petition for Rulemaking
☐ Request for Declaratory Order (2 Pa.C.S. 505)
☐ Request for Waiver or Variance from Existing Regulation
☐ Request for No-Action Letter or Advisory Opinion
☐ Comment on Regulatory Agenda (published in Pennsylvania Bulletin)

PART I: PRIMARY COMMENT LETTER TEMPLATE

A. Letterhead and Identification

[COMMENTER NAME / ORGANIZATION LETTERHEAD]
[________________________________]
[________________________________]
[________________________________]
[City, State ZIP]
Telephone: [________________________________]
Email: [________________________________]

Date: [__/__/____]

B. Agency Addressee

[Name of Agency Secretary / Executive Director / Rulemaking Contact]
[Title]
[Agency Name]
[________________________________]
[________________________________]
Harrisburg, Pennsylvania [____]

Via: ☐ First-Class Mail  ☐ Email ([________________________________])
     ☐ Online Portal  ☐ Hand Delivery  ☐ Fax ([________________________________])

C. Copy to IRRC

cc: Independent Regulatory Review Commission
    333 Market Street, 14th Floor
    Harrisburg, PA 17101
    Fax: (717) 783-2664
    Email: [email protected]

D. Reference Line

Re:     Regulatory Comment — [________________________________]
        Pennsylvania Bulletin Citation: [____] Pa.B. [____] ([__/__/____])
        Pennsylvania Code Citation: [____] Pa. Code Chapter [____]
        Regulation Identification Number: [________________________________]
        Agency: [________________________________]
        Comment Period Deadline: [__/__/____]

E. Introduction

Dear [________________________________]:

On behalf of [________________________________] ("Commenter"), [I/we] respectfully submit the following comments in response to [the proposed rulemaking / the advance notice of proposed rulemaking / the final-form regulation / the agency guidance document / the policy statement] published by [________________________________] (the "Agency") in the Pennsylvania Bulletin on [__/__/____], [____] Pa.B. [____], concerning [________________________________] (the "Proposed Regulation").

Commenter is a [________________________________] [individual / business entity / trade association / nonprofit organization / government entity] [operating in / representing members in] [________________________________] in the Commonwealth of Pennsylvania. Commenter has a direct and substantial interest in the Proposed Regulation because [________________________________].

A copy of this comment is being simultaneously submitted to the Independent Regulatory Review Commission as required by the Regulatory Review Act.

F. Executive Summary

Commenter [☐ supports / ☐ opposes / ☐ supports with modifications] the Proposed Regulation and respectfully requests that the Agency:

1. [________________________________]
2. [________________________________]
3. [________________________________]
4. [________________________________]

G. Statutory and Regulatory Background

The Agency's authority to [promulgate / amend / interpret] the [regulation / guidance / policy] at issue derives from:

• Enabling Statute: [________________________________] (P.S. [________________________________])
• Regulatory Review Act: 71 P.S. 745.1 et seq.
• Commonwealth Documents Law: 45 P.S. 1102 et seq.
• Relevant Pennsylvania Code Section(s): [____] Pa. Code [________________________________]
• Related Federal Law (if applicable): [________________________________]

H. IRRC Review Criteria Analysis (71 P.S. 745.5b)

Commenter respectfully addresses the IRRC review criteria established in 71 P.S. 745.5b(b):

1. Statutory Authority (745.5b(b)(1)):
[Does the agency have the statutory authority to promulgate this regulation?]
[________________________________]

2. Legislative Intent (745.5b(b)(2)):
[Is the regulation consistent with the intent of the General Assembly?]
[________________________________]

3. Other Regulations and Statutes (745.5b(b)(3)):
[Does the regulation conflict with existing regulations or statutes?]
[________________________________]

4. Public Interest (745.5b(b)(4)):
[Is the regulation in the public interest?]
[________________________________]

5. Economic Impact (745.5b(b)(5)):
[What is the economic or fiscal impact of the regulation on the Commonwealth, political subdivisions, and the private sector?]
[________________________________]

6. Adverse Effects (745.5b(b)(6)):
[Does the regulation adversely affect prices of goods or services, competition, or innovation?]
[________________________________]

7. Clarity and Lack of Ambiguity (745.5b(b)(7)):
[Is the regulation clear and not ambiguous?]
[________________________________]

I. Section-by-Section Analysis and Comments

Comment 1: [Regulation Section / Provision]

Comment 2: [Regulation Section / Provision]

Comment 3: [Regulation Section / Provision]

[Add additional comments as needed]

J. Economic and Fiscal Impact Analysis

Commenter offers the following analysis of the regulation's economic impact, as required to be assessed under the IRRC review criteria:

Estimated Compliance Cost: $[________________________________]

Impact on Small Businesses: [________________________________]

Impact on Local Government: [________________________________]

Impact on Pennsylvania Employment: [________________________________]

Impact on Prices of Goods and Services: [________________________________]

Fiscal Impact on Commonwealth: [________________________________]

Availability of Less Costly Alternatives: [________________________________]

K. Alternatives and Recommendations

Commenter respectfully proposes the following alternative approaches:

1. Alternative A: [________________________________]
   - Advantages: [________________________________]
   - Implementation: [________________________________]

2. Alternative B: [________________________________]
   - Advantages: [________________________________]
   - Implementation: [________________________________]

L. Conclusion

For the reasons set forth above, Commenter respectfully urges the Agency to [________________________________]. Commenter requests that the Agency [adopt / modify / withdraw] the Proposed Regulation [in its entirety / as specifically described herein].

Commenter [☐ requests / ☐ does not request] the opportunity to present oral testimony at a public hearing, if scheduled.

Commenter [☐ requests / ☐ does not request] notification of the Agency's final action and of IRRC's disposition of the regulation.

M. Supporting Documentation

The following documents are attached in support of this comment:

☐ Exhibit A: [________________________________]
☐ Exhibit B: [________________________________]
☐ Exhibit C: [________________________________]
☐ Exhibit D: [________________________________]
☐ Economic Impact Analysis
☐ Technical Data / Expert Report
☐ Comparative Regulatory Analysis (other jurisdictions)
☐ IRRC Criteria Analysis

N. Signature Block

Respectfully submitted,

________________________________________
[Full Name]
[Title / Position]
[Organization]
[________________________________]
[City], Pennsylvania [____]
Telephone: [________________________________]
Email: [________________________________]

Date: [__/__/____]

cc: Independent Regulatory Review Commission
    [email protected]
    Fax: (717) 783-2664

PART II: COMMENT DIRECTLY TO IRRC

The IRRC accepts comments on any pending regulation from any interested party, including individuals, associations, businesses, legislators, and standing committees. Comments may be submitted by mail, fax, or email.

IRRC Comment Template

[COMMENTER LETTERHEAD]

Date: [__/__/____]

Independent Regulatory Review Commission
333 Market Street, 14th Floor
Harrisburg, PA 17101
Email: [email protected]
Fax: (717) 783-2664

Re:     Comment on [Proposed / Final-Form] Regulation
        Agency: [________________________________]
        Regulation Identification Number: [________________________________]
        Pennsylvania Bulletin Citation: [____] Pa.B. [____]
        Pennsylvania Code Citation: [____] Pa. Code Chapter [____]

Dear Commissioners:

[________________________________] ("Commenter") respectfully submits this comment to the Independent Regulatory Review Commission regarding the above-referenced regulation.

1. IRRC Review Criteria at Issue (71 P.S. 745.5b(b)):
☐ (1) Statutory authority
☐ (2) Consistency with legislative intent
☐ (3) Conflict with other regulations or statutes
☐ (4) Public interest
☐ (5) Economic or fiscal impact
☐ (6) Adverse effects on prices, competition, or innovation
☐ (7) Clarity and lack of ambiguity

2. Detailed Analysis:
[________________________________]

3. Specific Concerns:
[________________________________]

4. Recommended IRRC Action:
☐ Approve the regulation
☐ Approve the regulation with recommended modifications
☐ Disapprove the regulation
☐ Request additional information from the agency

Respectfully submitted,

________________________________________
[Full Name]
[Title]
Date: [__/__/____]

PART III: REQUEST FOR DECLARATORY ORDER (2 Pa.C.S. 505)

Under 2 Pa.C.S. 505, a Commonwealth agency may issue declaratory orders to terminate a controversy or remove uncertainty regarding the applicability of any statute, regulation, or order.

BEFORE THE [AGENCY NAME]
COMMONWEALTH OF PENNSYLVANIA

In the Matter of:                           )
                                            )
Petition for Declaratory Order              )    Docket No. [________________]
Regarding [________________________________])
                                            )
Filed by: [________________________________])

TO THE [AGENCY NAME]:

Pursuant to 2 Pa.C.S. 505 and 1 Pa. Code 35.225, the undersigned Petitioner respectfully requests a declaratory order:

1. Petitioner Information:

• Name: [________________________________]
• Address: [________________________________]
• Telephone: [________________________________]
• Email: [________________________________]
• Attorney (if represented): [________________________________], PA ID No. [____]

2. Statute, Regulation, or Order at Issue:

• Statutory Citation: [________________________________]
• Pa. Code Citation: [____] Pa. Code [________________________________]

3. Controversy or Uncertainty to Be Resolved:
[________________________________]

4. Statement of Facts:
[________________________________]

5. Specific Question(s) Presented:

1. [________________________________]
2. [________________________________]

6. Petitioner's Position and Legal Analysis:
[________________________________]

7. Supporting Documentation:
☐ Factual exhibits attached
☐ Legal memorandum attached
☐ Prior agency determinations on related issues

8. Requested Relief:
Petitioner respectfully requests that the Agency issue a declaratory order determining that [________________________________].

________________________________________
[Signature]
[Printed Name]
[Title]
Date: [__/__/____]

PART IV: REQUEST FOR WAIVER OR VARIANCE

[LETTERHEAD]

Date: [__/__/____]

[Agency Secretary / Bureau Director]
[Agency Name]
[Address]

Re:     Request for Waiver/Variance from [________________________________]
        Pa. Code Citation: [____] Pa. Code [________________________________]
        Applicant: [________________________________]

Dear [________________________________]:

[________________________________] ("Applicant") respectfully requests a [☐ waiver / ☐ variance] from the requirements of the above-referenced regulation.

1. Regulation from Which Waiver/Variance is Sought:
[____] Pa. Code [________________________________]

2. Specific Provision(s) at Issue:
[________________________________]

3. Factual Basis for Request:
[________________________________]

4. Hardship or Impracticability of Compliance:
[________________________________]

5. Alternative Compliance Measures Proposed:
[________________________________]

6. How the Purpose of the Regulation Will Still Be Achieved:
[________________________________]

7. Public Health, Safety, and Welfare Considerations:
[________________________________]

8. Duration of Requested Waiver/Variance:
☐ Permanent ☐ Temporary — through [__/__/____]

Respectfully submitted,

________________________________________
[Signature]
[Printed Name]
[Title]
Date: [__/__/____]

PART V: COMMENT ON AGENCY GUIDANCE DOCUMENT OR POLICY STATEMENT

[LETTERHEAD]

Date: [__/__/____]

[Agency Secretary / Bureau Director]
[Agency Name]
[Address]

Re:     Comment on Agency Guidance Document / Policy Statement
        Document Title: [________________________________]
        Pennsylvania Bulletin Citation (if published): [____] Pa.B. [____]
        Date Published: [__/__/____]

Dear [________________________________]:

[________________________________] ("Commenter") respectfully submits the following comments regarding the above-referenced document.

1. Nature of Concern:
☐ The guidance exceeds the Agency's statutory authority
☐ The guidance conflicts with existing regulations in the Pennsylvania Code
☐ The guidance constitutes a "regulation" under 45 P.S. 1102 and requires formal rulemaking
☐ The guidance is ambiguous or unclear in application
☐ The guidance imposes binding requirements but was not adopted through the Regulatory Review Act process
☐ The policy statement should be converted to a binding regulation through formal rulemaking
☐ Other: [________________________________]

2. Specific Provisions at Issue:
[________________________________]

3. Analysis:
[________________________________]

Under 45 P.S. 1102, a "regulation" is defined as any rule, regulation, or order of general application having the force of law, issued by a Commonwealth agency. Policy statements are published in the Pennsylvania Bulletin as statements of policy under 1 Pa. Code 7.1 et seq. but are not binding. If this guidance document has binding effect, it must be promulgated as a regulation under the Regulatory Review Act.

4. Requested Action:
☐ Withdraw the guidance document
☐ Revise the guidance document
☐ Initiate formal rulemaking under 71 P.S. 745.5
☐ Publish as a statement of policy in the Pennsylvania Bulletin
☐ Other: [________________________________]

Respectfully submitted,

________________________________________
[Signature]
[Printed Name]
[Title]
Date: [__/__/____]

PART VI: COMMENT PREPARATION CHECKLIST

Before Submitting Your Comment

☐ Verified the comment period deadline (minimum 30 days from Pa. Bulletin publication)
☐ Confirmed correct agency and submission address/method
☐ Confirmed IRRC address for copy of comment ([email protected])
☐ Reviewed the full text of the proposed regulation in the Pennsylvania Bulletin
☐ Reviewed the agency's Preamble / Regulatory Analysis Form
☐ Reviewed the agency's Fiscal Note (if applicable)
☐ Identified all specific Pennsylvania Code sections or provisions at issue
☐ Researched relevant enabling statutes
☐ Researched relevant existing Pennsylvania Code provisions
☐ Checked for related federal regulations or preemption issues
☐ Assessed the regulation against IRRC review criteria (71 P.S. 745.5b(b))
☐ Prepared economic/compliance cost analysis if applicable
☐ Gathered supporting data, studies, or expert opinions
☐ Drafted section-by-section comments with specific proposed language changes
☐ Identified less burdensome alternatives
☐ Reviewed comment for legal accuracy and professional tone

Submission Requirements

☐ Comment is addressed to the correct agency contact
☐ Copy sent simultaneously to IRRC
☐ Comment clearly identifies the regulation by Pa. Bulletin citation and Pa. Code reference
☐ Comment includes Regulation Identification Number
☐ Comment includes commenter's full contact information
☐ Comment is filed before the deadline
☐ Retained copy of comment for records
☐ If submitting electronically, confirmed receipt acknowledgment from agency and IRRC
☐ If requesting oral testimony, noted hearing date and location

Post-Submission Follow-Up

☐ Confirmed receipt of comment by the Agency
☐ Confirmed receipt of comment by IRRC
☐ Calendared IRRC comment deadline (30 days after close of public comment period)
☐ Monitored Pennsylvania Bulletin for IRRC comments on the regulation
☐ Monitored for final-form regulation submission
☐ Reviewed final-form regulation for responsiveness to comments
☐ Reviewed IRRC final order on final-form regulation
☐ Monitored standing committee action (20-day review period)
☐ Assessed whether to submit additional comments during final-form review

PART VII: AGENCY RESPONSE OBLIGATIONS

Under Pennsylvania's Regulatory Review Act and related statutes, agencies and IRRC have the following obligations:

Challenging Agency Non-Compliance

If the Agency or IRRC fails to comply with its obligations:

☐ Submit comment to IRRC identifying procedural deficiency
☐ Contact standing committee of the General Assembly
☐ Seek judicial review in Commonwealth Court
☐ File petition for review under 2 Pa.C.S. Chapter 7
☐ Contact the Office of Attorney General regarding legal compliance

Sources and References

• Pennsylvania Regulatory Review Act: 71 P.S. 745.1 et seq.
• Independent Regulatory Review Commission (IRRC): irrc.state.pa.us
• Pennsylvania Bulletin: pacodeandbulletin.gov
• Pennsylvania Code: pacodeandbulletin.gov
• IRRC Regulation Search: irrc.state.pa.us/regulations/find_a_regulation.cfm
• IRRC FAQs: irrc.state.pa.us/contact/faqs.cfm
• Regulatory Review Process Manual: irrc.state.pa.us/resources/docs/Regulatory_Review_Process_Manual.pdf