[Federal Register Volume 59, Number 18 (Thursday, January 27, 1994)]
[Unknown Section]
[Page 0]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 94-1683]


[[Page Unknown]]

[Federal Register: January 27, 1994]


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DEPARTMENT OF AGRICULTURE

Agricultural Stabilization and Conservation Service

7 CFR Part 703

RIN 0560-AD59

 

Wetlands Reserve Program

AGENCY: Agricultural Stabilization and Conservation Service, USDA.

ACTION: Interim rule with request for comments.

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SUMMARY: Title XII, section 1237 of the Food Security Act of 1985, as 
amended, was amended by the Omnibus Budget Reconciliation Act of 1993 
to specify the number of acres the Secretary of Agriculture shall 
enroll in the Wetlands Reserve Program (WRP). This interim rule amends 
the regulations governing the WRP to comply with statutory changes; 
expand the number of participating States from 9 States to 20 States; 
revise the process by which the Agricultural Stabilization and 
Conservation Service (ASCS) enrolls acreage in the WRP; and provide 
other changes based on experience in administering the 1992 Pilot WRP.

DATES: Effective Date: Interim rule effective January 27, 1994. 
Comments: Comments must be received on or before February 28, 1994, in 
order to be assured of consideration.

ADDRESSES: Comments should be mailed to James R. McMullen, Director, 
Conservation and Environmental Protection Division, ASCS, P.O. Box 
2415, room 4714-S, Washington, DC 20013-2415; telephone 202-720-6221. 
Comments received may be inspected between 9 a.m. and 4 p.m., Monday 
through Friday, except holidays, in room 4714, South Agriculture 
Building, United States Department of Agriculture, 14th Street and 
Independence Avenue, SW., Washington, D.C.

FOR FURTHER INFORMATION CONTACT: Lois Hubbard, Conservation and 
Environmental Protection Division, ASCS, P.O. Box 2415, room 4721-S, 
Washington, DC 20013-2415; telephone 202-720-9563.

SUPPLEMENTARY INFORMATION:

Executive Order 12866

    This interim rule was submitted to the Office of Management and 
Budget for review under Executive Order 12866.

Regulatory Flexibility Act

    It has been determined that the Regulatory Flexibility Act is not 
applicable to this rule because ASCS is not required by 5 U.S.C. 553 or 
any other provision of law to publish a notice of proposed rule making 
with respect to the subject matter of this rule.

Environmental Evaluation

    It has been determined by an environmental evaluation that this 
action will not have any significant adverse impact on the quality of 
the human environment. Therefore, an environmental impact statement or 
environmental assessment is not needed. Copies of a final environmental 
evaluation are available upon request.

Executive Order 12372

    This program/activity is not subject to the provisions of Executive 
Order 12372 because it involves direct payments to individuals and not 
to State and local officials. See notice related to 7 CFR part 3015, 
subpart V, published at 48 FR 29115 (June 24, 1983).

Federal Domestic Assistance Program

    The title and number of the Federal Domestic Assistance Program, as 
found in the Catalog of Federal Domestic Assistance, to which this rule 
applies are: Wetlands Reserve Program--10.072.

Paperwork Reduction Act

    The information collection requirements of this interim rule at 7 
CFR part 703 have been submitted to the Office of Management and Budget 
for expedited approval under provisions of 44 U.S.C. chapter 33. 
Approval of the forms is requested by February 1, 1994. The public 
reporting burden for the information collections that would be required 
for compliance with these regulations is estimated to average 39 
minutes per response, including the time for reviewing instructions, 
searching existing data sources, gathering and maintaining the data 
needed, and completing and reviewing the collection of information.

Executive Order 12778

    This interim rule has been reviewed in accordance with Executive 
Order 12778. The provisions of this interim rule are not retroactive 
and preempt State and local laws to the extent such laws are 
inconsistent with the provisions of this interim rule. Before an action 
may be brought in a Federal court of competent jurisdiction, the 
administrative appeal rights afforded program participants at 7 CFR 
part 780 must be exhausted.

Discussion of Program

    The current regulations in 7 CFR part 703, published as a final 
rule on June 4, 1992 (57 FR 23908), implemented the 1992 pilot WRP, 
which is authorized by title XII of the Food Security Act of 1985, as 
amended (1985 Act). Under the WRP, ASCS will purchase easements, in 
lump-sum payments, from persons owning cropland who voluntarily agree 
to restore and protect farmed wetlands, prior converted croplands, 
substantially altered lands, and eligible adjacent acres. Fund and 
acreage allocations will be provided to States based on landowner 
interest and other factors as determined by the Deputy Administrator, 
State and County Operations, ASCS, in consultation with the Soil 
Conservation Service and the Fish and Wildlife Service. Land eligible 
for enrollment in the WRP includes farmed wetlands, prior converted 
croplands, but not lands converted after December 23, 1985, or 
substantially altered lands, together with adjacent lands on which the 
wetlands are functionally dependent so long as the likelihood of 
successful restoration of such land and the wetland values merit 
inclusion in the program taking into account the cost of restoring the 
wetlands. ASCS is also permitted to include in the program:
    (1) Farmed wetlands, prior converted croplands, or substantially 
altered lands and adjoining lands which are enrolled in the 
Conservation Reserve Program (CRP), as authorized by title XII of the 
1985 Act, with the highest wetland functions and values and that are 
likely to return to production at the end of the CRP contract;
    (2) Other wetlands that would not otherwise be eligible if it is 
determined that inclusion in the program would add to the value of the 
easement; and
    (3) Riparian areas that link wetlands which are protected by 
easements or by some other device or circumstance that achieves the 
same purpose as an easement.
    Landowners are not eligible to receive funding under both the 
Emergency Conservation Program (ECP) and the WRP on the same acreage. 
ECP payments received on acreage offered for WRP must be refunded, 
provided the ECP practice is still within its lifespan provisions, 
before any WRP payment will be disbursed.
    This interim rule does not impact the Emergency Wetlands Reserve 
Program as authorized by the Emergency Supplemental Appropriations for 
Relief From the Major, Widespread Flooding in the Midwest Act of 1993 
(Pub. L. 103-75).

Statutory Changes

    During fiscal year 1992, WRP was authorized in the following 
States: California, Iowa, Louisiana, Minnesota, Mississippi, Missouri, 
New York, North Carolina, and Wisconsin. Section 1237 of the 1985 Act 
was amended by the Omnibus Budget Reconciliation Act of 1993 to specify 
that the Secretary shall enroll in the WRP a total of not less than 
330,000 acres by the end of 1995 and a total of not less than 975,000 
acres during 1991 through 2000. Congress has appropriated $66,675,000 
to be used to enroll no more than 75,000 acres in fiscal year 1994.
    This interim rule amends 7 CFR part 703 for WRP to:
    (1) With respect to fiscal year 1994 only, identify enrollment 
availability in 20 States, including the nine States in the fiscal year 
1992 pilot program;
    (2) Provide for the appraisal for easements by licensed appraisers 
who are also approved by ASCS; and
    (3) Make other changes based on experience gained from 
administering the pilot WRP in fiscal year 1992.

List of Subjects in 7 CFR Part 703

    Administrative practices and procedures, Appraisals, Compliance 
procedures, Easements, Natural resources, Technical assistance, 
Wetlands Reserve Plan of Operations (WRPO).

    Accordingly, 7 CFR part 703 is amended as follows:

PART 703--WETLANDS RESERVE PROGRAM

    1. The authority citation for 7 CFR part 703 is revised to read as 
follows:

    Authority: Public Law 99-198, 107 Stat. 739; 16 U.S.C. 3837 et. 
seq.

    2. Section 703.1 is revised to read as follows:


Sec. 703.1  Applicability.

    (a) The regulations in this part govern the Wetlands Reserve 
Program (WRP). For fiscal year 1992 only, the WRP shall be available to 
producers in California, Iowa, Louisiana, Minnesota, Mississippi, 
Missouri, New York, North Carolina, and Wisconsin. For fiscal year 1994 
only, the WRP shall be available in these nine States and in Arkansas, 
Illinois, Indiana, Kansas, Nebraska, Oregon, South Dakota, Tennessee, 
Texas, Virginia, and Washington. These states have been determined to 
have a high incidence of:
    (1) Significant acreage of hydric cropland;
    (2) Potential capacity of restoration;
    (3) Diversity in kinds of wetlands; or
    (4) Substantial benefits for migratory birds and other wildlife.
    (b) Under the WRP, ASCS will accept voluntary offers of acreage for 
the purchase of easements from eligible persons who have eligible land 
with respect to which they agree to restore and protect farmed 
wetlands, prior converted croplands, or substantially altered lands, 
and eligible adjacent lands. Such voluntary easements will be for the 
purpose of restoring the hydrology and vegetation and protecting the 
functions and values of wetlands for wildlife habitat, water quality 
improvement, flood water retention, ground water recharge, open space, 
aesthetic values, environmental education, and other values determined 
appropriate by ASCS.


Sec. 703.2  [Amended]

    3. In Sec. 703.2, paragraph (f)(1) is amended by removing the words 
``cost of the restoration'' and adding in their place, the words 
``costs of restoration and of acquiring the easement'', and paragraph 
(f)(2) is amended by inserting the word ``not'' after the word 
``will''.
    4. Section 703.3(b) is amended by:
    A. Revising the definitions of ``Bid'', ``Non-permanent easement'', 
``Participant'', and ``Permanent easement'', and
    B. Adding ``Appraisal'', ``Preliminary plan'', and ``Substantially 
altered lands'' to read as follows:


Sec. 703.3  Definitions.

* * * * *
    (b) * * *
* * * * *
    Appraisal means the agriculture value of the easement area on an 
``as is'' bases as determined by an appraiser licensed by the State in 
which the appraisal is made and who is also approved by ASCS.
* * * * *
    Bid, for the 1992 Pilot Program, unless the context indicates 
otherwise, means the total payment requested by the owner for granting 
an easement.
* * * * *
    Non-permanent easement means a temporary deed restriction that is 
acquired by ASCS from an eligible landowner that requires the 
protection and maintenance of wetland restoration on designated 
acreage.
    Participant means a landowner who has an approved contract.
    Permanent easement means a deed restriction that lasts through 
perpetuity, acquired by ASCS from an eligible landowner, and which 
requires the protection and maintenance of wetland restoration 
practices on designated acreage.
* * * * *
    Preliminary plan means a plan jointly developed by a landowner, 
SCS, and FWS to provide the landowner with an estimate of the extent 
and cost of restoration activities, and to obtain adequate information 
to prioritize intentions to participate.
* * * * *
    Substantially altered lands means lands which have not been and are 
not now wetlands, but with a high degree of certainty will likely 
develop wetland characteristics as a result of natural flooding.
* * * * *
    5. Section 703.5 is revised to read as follows:


Sec. 703.5  Maximum acreage limitation.

    ASCS will attempt to enroll into the WRP during the 1991-2000 
calendar years:
    (a) A total of not less than 330,000 acres through 1995; and
    (b) A total of not less than 975,000 acres through 2000.
    6. Section 703.7 is amended by revising paragraphs (a)(1)(i), 
(a)(2)(i), (a)(2)(ii), and (a)(2)(iii) to read as follows:


Sec. 703.7  Eligible land.

    (a)(1) * * *
    (i) Is wetland farmed under natural conditions, a farmed wetland, 
prior converted cropland except that converted lands shall not be 
eligible for enrollment if the conversion was not commenced prior to 
December 23, 1985, or substantially altered land; and
    (2) * * *
    (i) Have been annually planted or considered planted to an 
agricultural commodity in at least 1 of the 5 crop years 1986 through 
1990, and have been capable of being cropped in 1992 or 1993;
    (ii) If enrolled under a CRP contract, or under a Federal or State 
wetland restoration program without an easement of at least 30 years, 
have been planted to an agricultural commodity 2 of the 5 crop years, 
1981 through 1985; and
    (iii) Not be used as a mitigation site for Federal, State or local 
permit conditions or program participation requirements, or public or 
private mitigation banks.
* * * * *


Sec. 703.8  [Amended]

    7. Section 703.8(a) is amended by revising ``Converted wetlands'' 
to read ``Prior converted croplands''.
    8. Section 703.9(b) is revised to read as follows:


Sec. 703.9  Transfer of lands from the CRP to WRP.

* * * * *
    (b) The application for such transfer into the WRP is agreed to by 
ASCS. If such transfer is requested by the owner and agreed to by ASCS, 
then the CRP contract for the property shall be terminated or otherwise 
modified subject to such terms and conditions as are mutually agreed 
upon. Transfers from CRP to WRP after the second available WRP signup 
period will only be permitted if the owner agrees to refund all 
payments received under the CRP since the close of the second available 
WRP signup. Further, Emergency Wetlands Reserve Program signup periods 
are not considered WRP signup periods.
    9. Section 703.10 is revised to read as follows:


Sec. 703.10  Easement priority.

    (a) ASCS shall, to the extent practicable, in determining which 
areas to accept, take into account the cost of restoration, the cost of 
acquiring the easement, and environmental benefits which would be 
acquired through the purchase of the easement.
    (b) In evaluating the value of obtaining an easement, different 
weights may be given to the factors for determining the priority by 
ASCS to accomplish the goals of the WRP.
    (c) ASCS will rank the areas offered, based on environmental 
benefits relative to the government expenditure using the following 
factors for determining the priority:
    (1) Habitat for migratory birds, threatened or endangered species, 
fish, and other wildlife;
    (2) Wetland functions and values;
    (3) Location significance;
    (4) Wetland management requirements;
    (5) Physical conditions of the site including the likelihood of 
developing or restoring wetland characteristics;
    (6) Costs of restoration and of acquiring the easement; and
    (7) Other environmental or cost factors as determined appropriate 
by ASCS to accomplish the goals of the WRP that may also incorporate 
ASCS State office goals and objectives.
    10. Section 703.11 is amended by revising the section heading and 
revising paragraphs (b)(1), (b)(2), (c), and (d) to read as follows:


Sec. 703.11  Statement of intention to participate.

* * * * *
    (b) * * *
    (1) Obtains a preliminary plan; and
    (2) Accepts the amount offered by ASCS in return for enrollment in 
WRP and agrees to other conditions for participation that may be 
required by ASCS, including the creation of an easement on the 
property. Such acceptance must be made no later than 15 calendar days 
after notification by ASCS of the purchase value of the easement unless 
a later date is agreed to by ASCS. The determination of which areas to 
accept shall be at the exclusive discretion of ASCS.
    (c) A person submitting a statement of intention to participate 
shall not be obligated to accept an easement.
    (d) An offer is considered accepted only if agreed to by all owners 
of the property or their duly authorized representative.
    11. Section 703.12 is amended by:
    A. Revising paragraph (a) introductory text,
    B. Revising paragraphs (a)(1)(iv) and (a)(1)(v),
    C. Adding paragraph (a)(1)(vi),
    D. Revising paragraphs (a)(13), (a)(14), (a)(17), and (a)(18), and
    E. Adding paragraph (a)(19) to read as follows:


Sec. 703.12  Obligations of the landowner.

    (a) All owners of land who accept ASCS' offer to enroll land in WRP 
shall:
    (1) * * *
    (iv) Reserve to ASCS the right to permit such compatible uses of 
the easement area as may be identified in the WRPO;
    (v) Reserve to the landowner those compatible uses identified in 
the WRPO that are permitted to be pursued by the landowner; and
    (vi) Be filed in the appropriate land records office within 12 
months from the end of the applicable signup period, unless otherwise 
determined by the Deputy Administrator. If not filed, ASCS shall 
terminate the offer to enroll in WRP.
* * * * *
    (13) Not plant for harvest an agricultural commodity on the 
enrolled land subsequent to the filing of an easement;
    (14) Not alter the vegetation, except to harvest already planted 
crops or forage, or the hydrology on such acres after the easement is 
filed, except as provided in the easement or WRPO;
* * * * *
    (17) Refrain from taking any action on the easement area unless 
specifically authorized in the reserve interest easement or the WRPO;
    (18) Secure any necessary local, State and Federal permits prior to 
commencing restoration of the designated area; and
    (19) Not allow WRP easements or restoration to be used as a 
mitigation site for Federal, State or local permit conditions or 
program participation requirements, or public or private mitigation 
banks.
* * * * *
    12. Section 703.13 is amended by:
    A. Revising paragraph (c)(1),
    B. Removing paragraph (c)(4),
    C. Redesignating paragraph (c)(5) as paragraph (c)(4) and revising 
redesignated paragraph (c)(4), and
    D. Adding a new paragraph (e) to read as follows:


Sec. 703.13  Payments to landowners by ASCS.

* * * * *
    (c)(1) ASCS shall pay, after an easement is filed, a lump-sum 
amount for the easement as determined by ASCS on eligible land. For all 
easements, ASCS shall withhold a portion of the payments that might 
otherwise be made pending completion of the restoration plan for the 
property and ASCS may condition any payment on satisfactory progress 
toward completion of the plan. ASCS shall pay no more than 10 percent 
per year of the total purchase price for the easement pending 
completion of the restoration of the wetlands;
* * * * *
    (4) No easement payment may be made which would exceed the total 
amount offered for the property and payments may only be made if the 
person on whose account the payment is to be made:
    (i) Has agreed to all terms and conditions of the program set out 
in this part;
    (ii) Accepted the amount offered on the standard ASCS-approved form 
for the WRP; and
    (iii) Is in full compliance with the terms and conditions of the 
WRP easement except to the extent that relief is authorized by this 
part and is approved under guidelines issued by the Deputy 
Administrator.
* * * * *
    (e) Landowners may not receive payment under ECP and WRP on the 
same acreage. ECP payments shall be refunded, provided the ECP practice 
is within the required lifespan provisions, before a WRP payment will 
be disbursed, unless otherwise determined by the Deputy Administrator.
    13. Section 703.15 is amended by revising paragraphs (a), (b)(2), 
and (d) to read as follows:


Sec. 703.15  Wetlands reserve plan of operations.

    (a) Prior to filing an easement to enroll land in the WRP, the 
landowner must have obtained an ASCS approved WRPO for the land.
* * * * *
    (b)(2) Specify the manner in which the farmed wetlands or prior 
converted croplands included in the enrolled land shall be restored, 
operated, and maintained to accomplish the goal of the program together 
with other practices which may be necessary or appropriate to 
accomplish the goals of the program, including, where appropriate:
* * * * *
    (d) The WRPO must be signed by SCS, FWS, CD, ASCS, and the 
landowner before an easement is filed. If agreement between SCS and FWS 
at the local level is not reached within 20 calendar days of acceptance 
of the appraisal by the landowner, the WRPO shall be developed by the 
State Conservationist of SCS in consultation with FWS.
* * * * *
    14. Section 703.17(c) is revised to read as follows:


Sec. 703.17  Transfer of land.

* * * * *
    (c) Any transfer of the property prior to the filing of the 
easement shall void any statement of intention to participate and WRP 
contract, unless the new owner agrees to be a party to the intention to 
participate or the contract within 60 calendar days of the recordation 
of the deed transferring the land to the new owner, or as otherwise 
determined by the Deputy Administrator.
    15. Section 703.25(c) is added to read as follows:


Sec. 703.25  Appeals.

* * * * *
    (c) An appraisal and supporting documentation used by ASCS in 
determining property value are considered confidential information, and 
shall only be disclosed as determined at the sole discretion of ASCS.

    Signed at Washington, DC, on January 14, 1994.
Bruce R. Weber,
Acting Administrator, Agricultural Stabilization and Conservation 
Service.
[FR Doc. 94-1683 Filed 1-26-94; 8:45 am]
BILLING CODE 3410-05-P