[Federal Register Volume 59, Number 161 (Monday, August 22, 1994)]
[Unknown Section]
[Page 0]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 94-20552]


[[Page Unknown]]

[Federal Register: August 22, 1994]


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ENVIRONMENTAL PROTECTION AGENCY
Office of the Federal Environmental Executive
[FRL-5054-1]

 

Availability of the Presidential Memorandum for the Heads of 
Executive Departments and Agencies on Environmentally and Economically 
Beneficial Practices on Federal Landscaped Grounds

AGENCY: Office of the Federal Environmental Executive, EPA.

ACTION: Notice, Review & Comment.

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SUMMARY: On April 26, 1994, President Clinton signed a Memorandum for 
the Heads of Executive Departments and Agencies encouraging 
Environmentally and Economically Beneficial Practices on Federal 
Landscaped Grounds.
    The Memorandum calls for the establishment of an interagency work 
group by the Federal Environmental Executive to recommend guidance to 
all Federal agencies in the implementation of the Memorandum. This 
notice and request for comment is provided at the request of the 
Federal Environmental Executive in order to provide for the maximum 
amount of public input into the guidance.

DATES: Written comments on the suggested guidelines for the 
implementation of the Presidential Memorandum should be received on or 
before September 16, 1994.

ADDRESSES: Persons wishing to comment on the guidelines to implement 
this Presidential Memorandum should submit their comments to The Office 
of the Federal Environmental Executive; Mail Code: 1600; Washington, DC 
20460.

FOR FURTHER INFORMATION: Contact Debra Yap (202) 260-9291.

SUPPLEMENTARY INFORMATION: ``Reinventing Environmental Management'' an 
Accompanying Report of the National Performance Review (NPR), clearly 
makes the case that the Federal government's daily operation--how it 
manages the lands, buildings, and other facilities that it owns or 
operates, has a significant impact on the environment.
    The National Performance Review recommended that the President 
issue a directive to require the use of environmentally and 
economically beneficial landscaping for Federal lands and facilities 
and federally funded projects. The NPR called upon the directive to 
increase the use of native plant species and to reduce the amount of 
chemicals applied to Federal landscapes. The NPR also called for the 
use of water efficient technologies in Federal landscaping projects; to 
provide educational and conservation opportunities to the public and to 
establish a government wide environmentally sound landscape program.
    In response to the NPR, on April 26, 1994, President Clinton signed 
a Presidential Memorandum. The Memorandum called for the establishment 
of guidelines for Federal facility managers on how to increase the use 
of native species, reduce the use of chemical fertilizers and 
pesticides, and implement water conservation techniques. Those 
guidelines will be proposed by a Federal Inter-Agency workgroup 
established by the Federal Environmental Executive. The purpose of this 
notice is to request input from interested parties on factors that 
should be included in the guidance. This notice provides a brief 
discussion of the particular sections of the Memorandum and issues 
which will be considered when the guidance is proposed. The guidelines 
should allow for climatic and geographic differences, and should 
provide a framework for agencies to consider as they plan their 
landscape requirements.
    The Landscape Memorandum identifies five (5) priorities. Each of 
these have raised questions.

(a) Use Regionally Native Plants

    Intent: to incorporate native plants wherever practicable into 
landscape projects.
    Discussion: The use of native plants is encouraged because 
regionally native plants are believed to be regionally adapted to 
environmental conditions, i.e. soils, precipitation, light, extreme 
cold or heat, etc. By planting native plants we are using plants that 
are therefore more hardy and more likely to be self-reliant than non-
native alternatives.
    Concerns: (1) What is a native plant? Executive Order 11987 on 
Exotic Organisms, signed by President Carter on May 24, 1977, used the 
following definition: ``all species of plants (and animals) naturally 
occurring, either presently or historically, in any ecosystem in the 
United States.'' It has been suggested that the word ``presently'' be 
eliminated from the definition, so as to avoid naturalized plants from 
being considered native. An alternative definition could be: ``all 
species, indigenous to, or known to exist in a region at the time of 
European settlement.''
    (2) Do commercial sources of native plants and seed exist to meet 
this new demand? It is believed that a substantial group of native 
plant and seed sources exists in the Midwest, Southwest and Southeast 
regions. However, other regions cannot meet the new demand. How can we 
develop more sources for native plants and seeds?
    (3) Does the public understand the use of native plants enough to 
support this project? Can the public understand that all cemeteries 
operated by the United States Government should not be covered with 
lush Kentucky Blue Grass? Can the public understand that the government 
cannot afford to maintain roadsides as if they were the nation's front 
yards? Can the public accept a new ecological aesthetic?
    (4) How will agencies be provided training in the use and 
maintenance of planted native landscapes? Do the Agencies currently 
have resources that could be diverted to this new training, or is the 
new program going to require additional resources?
    (5) Under what conditions is the planting of native species 
practicable and appropriate? Should native species be used primarily 
outside urban areas?
    (6) How do we avoid weed free seeds, to avoid accidental 
introduction of non-natives, or aggressive exotic species to a project? 
Are state agricultural seed standards strong enough?

(b) Design, Use, or Promote Construction Practices that Minimize 
Adverse Effects on the Natural Habitat

    Intent: The language here seeks to: (1) Maintain and promote the 
existing natural habitat; (2) Minimize disturbance to the natural 
habitat; and (3) Integrate design and construction of Federal projects 
with the surrounding natural habitat.
    Discussion: These principals are to be applied to federally funded 
projects where cost effective and to the extent practicable. We do not 
envision major restoration of natural habitats to be accomplished under 
this executive memorandum, nor do we envision that cost and time 
considerations will be sublimated in that effort. Instead, we envision 
that through thoughtful design work, proper planning and quality 
construction, these goals will be achieved. Although first-cost 
construction may be higher, overall costs may prove lower as costs for 
irrigation, maintenance, fertilization and pest control may decline.
    Concerns: (1) What is the definition of `natural habitat'? This 
definition could embrace both ``native'' and ``existing'' habitat with 
the determination being site specific and made on a case-by-case basis. 
Is a ``Natural Habitat'' the local association of plants adapted to the 
soil, topography and climate of an area that provide food and cover for 
indigenous species of the area?
    (2) To what extent should we expend additional revenue in support 
of minimizing adverse impacts to the natural habitat? Clearly, if the 
implementation of these principles produces lower costs and minimal or 
no impact to time delivery, it will be readily accepted, but, measuring 
costs and cost-effectiveness can be subjective. Record keeping will be 
imperative.
    (3) What is the best method for getting appropriate design 
principles incorporated into Federal agency design specifications and 
guidance, etc? In particular, how can we get landscape designs 
integrated with the natural habitat, incorporating native plants, 
xeriscaping principles and water efficient irrigation?
    (4) How can we ensure that the principles and practices identified 
in the Executive Memorandum are implemented by Federal agencies? Should 
this be the responsibility of each Agency's Environmental Executive 
(designated under Executive Order 12873)?

(c) Seek to Prevent Pollution By, Among Other Things, Reducing 
Fertilizer and Pesticide Use, Using Integrated Pest Management 
Techniques, Recycling Green Waste, and Minimizing Runoff. Landscaping 
Practices that Reduce the Use of Toxic Chemicals Provide One Approach 
for Agencies to Reach Reduction Goals Established in Executive Order 
No. 12856, ``Federal Compliance with Right-To-Know Laws and Pollution 
Prevention Requirements;''

    Discussion: Landscaping practices which do not require, or require 
only limited, application of fertilizer and/or pesticides may result in 
significant prevention of pollution in several ways. First, and most 
conspicuous, any decreased need for application decreases the 
likelihood that adverse environmental impacts associated with runoff of 
these chemicals will occur. In addition, reduced need for chemical 
substances will decrease the amount of energy expended to produce these 
chemicals. One practice, the use of integrated pest management, not 
only serves to reduce or eliminate the need for pesticide application 
and thus prevent pollution, it generally results in significant 
reductions in unintended impacts to non-target species, resulting in an 
secondary environmental benefit beyond pollution prevention. 
Additionally, recycling of ``green waste'' results in a range of 
environmental benefits linked to pollution prevention. The collection, 
composting and ultimate reuse of green wastes not only reduces the 
amount of materials placed in landfills, it decreases and can eliminate 
the need for man-made fertilizers and thus reaps the same benefits as 
other such landscaping practices. Finally, landscaping practices may 
serve a vital role in pollution prevention through the use of plants as 
barriers to pollution and to absorb natural or man made pollutants 
which may otherwise enter natural systems such as waterbodies. For 
example, buffer plantings along waterways act to absorb excess 
nutrients and chemical pollutants which might otherwise enter 
waterways.
    Concerns: (1) How can the Federal community best accomplish this 
task? Non-traditional landscaping practices such as integrated pest 
management not only require training to be effective, they require 
acceptance on the part of facility managers.

(d) Implement Water-Efficient Practices, Such As the Use of Mulches, 
Efficient Irrigation Systems, Audits to Determine Exact Landscaping 
Water-Use Needs, and Recycled or Reclaimed Water and the Selecting and 
Siting of Plants in A Manner that Conserves Water and Controls Soil 
Erosion. Landscaping practices, Such As Planting Regionally Native 
Shade Trees Around Buildings to Reduce Air Conditioning Demands, Can 
Also Provide Innovative Measures to Meet the Energy Consumption 
Reduction Goal Established in Executive Order No. 12902, ``Energy 
Efficiency and Water Conservation at Federal Facilities;''

    Discussion: Certain landscaping practices by design result in 
elimination or reduction of supplementary water needed to sustain 
landscaped areas and prevent or reduce soil erosion. Practices such as 
the use of mulches which reduce evaporation from landscaped areas and 
effective siting of landscape plantings can decrease the need for 
supplemental water and prevent physical erosion of the soil. Other 
practices, such as efficient irrigation systems and water audits, 
ensure that supplemental water is used most effectively and only when 
necessary. Additionally, the use of recycled or reclaimed water offers 
an alternative to the use of potable water which both satisfies 
landscaping water needs and conserves energy by decreasing the need for 
treated water. Finally, consideration of the natural shading effect 
associated with landscape plantings can serve to reduce heat loadings 
on buildings and result in energy conservation. These landscaping 
practices can conserve valuable water resources and energy and provide 
significant environmental benefits to affected Federal property 
managers.
    Concerns: (1) Since the use of non-traditional landscaping 
practices will require training to ensure success, how can the Federal 
government ensure that facility managers are aware of, and accept, non-
traditional water-efficient landscaping practices?
    (2) Are there potential problems with the use of recycled or 
reclaimed water?
    (3) Likewise, are there potential problems with the use of recycled 
materials, i.e. newspaper and sludge?

(e) Create Outdoor Demonstrations Incorporating Native Plants, As Well 
As Pollution Prevention and Water Conservation Techniques, to Promote 
Awareness of the Environmental An Economic Benefits of Implementing 
This Directive. Agencies are Encouraged to Develop Other Methods for 
Sharing Information on Landscaping Advances With Interested Nonfederal 
Parties

    Discussion: Many Federal facilities have a significant acreage of 
open land which remains unused for facility buildings and 
infrastructure. In many instances, the public is actively invited to 
use these lands for passive recreational purposes such as bird 
watching, picnicking, or hiking. These areas, therefore present a 
significant opportunity to showcase the aesthetic and economic 
effectiveness of environmentally beneficial landscaping. Demonstration 
projects allow both public and private interests to experience the 
benefits of landscaping practices and apply those practices to their 
own landscaping activities. Other technology and information transfer 
methods such as workshops and brochures can also provide this benefit.
    Concerns: (1) In this era of restricted resources, will the public 
understand the use of public funds for landscaping demonstration 
projects?
    The text of the Presidential Memorandum follows:

Memorandum on Environmentally Beneficial Landscaping

April 26, 1994.

Memorandum for the Heads of Executive Departments and Agencies

Subject: Environmentally and Economically Beneficial Practices on 
Federal Landscaped Grounds

    The Report of the National Performance Review contains 
recommendations for a series of environmental actions, including one to 
increase environmentally and economically beneficial landscaping 
practices at Federal facilities and federally funded projects. 
Environmentally beneficial landscaping entails utilizing techniques 
that complement and enhance the local environment and seek to minimize 
the adverse effects that the landscaping will have on it. In 
particular, this means using regionally native plants and employing 
landscaping practices and technologies that conserve water and prevent 
pollution.
    These landscaping practices should benefit the environment, as well 
as generate long-term costs savings for the Federal Government. For 
example, the use of native plants not only protects our natural 
heritage and provides wildlife habitat, but also can reduce fertilizer, 
pesticide,and irrigation demands and their associated costs because 
native plants are suited to the local environment and climate.
    Because the Federal Government owns and landscapes large areas of 
land, our stewardship presents a unique opportunity to provide 
leadership in this area and to develop practical and cost-effective 
methods to preserve and protect that which has been entrusted to us. 
Therefore, for Federal grounds, Federal projects, and federally funded 
projects, I direct that agencies shall, where cost-effective and to the 
extent practicable:

    (a) Use regionally native plants for landscaping;
    (b) Design, use, or promote construction practices that minimize 
adverse effects on the natural habitat;
    (c) Seek to prevent pollution by, among other things, reducing 
fertilizer and pesticide use, using integrated pest management 
techniques, recycling green waste,and minimizing runoff. Landscaping 
practices that reduce the use of toxic chemicals provide one 
approach for agencies to reach reduction goals established in 
Executive Order No. 12856 ``Federal Compliance with Right-To-Know 
Laws and Pollution Prevention Requirements;''
    (d) Implement water-efficient practices, such as the use of 
mulches, efficient irrigation systems, audits to determine exact 
landscaping water-use needs,and recycled or reclaimed water and the 
selecting and siting of plants in a manner that conserves water and 
controls soil erosion. Landscaping practices, such as planting 
regionally native shade trees around buildings to reduce air 
conditioning demands, can also provide innovative measures to meet 
the energy consumption reduction goal established in Executive Order 
No. 12902, ``Energy Efficiency and Water Conservation at Federal 
Facilities;'' and
    (e) Create outdoor demonstrations incorporating native plants, 
as well as pollution prevention and water conservation techniques, 
to promote awareness of the environmental and economic benefits of 
implementing this directive. Agencies are encouraged to develop 
other methods for sharing information on landscaping advances with 
interested nonfederal parties.

    In order to assist agencies in implementing this directive the 
Federal Environmental Executive shall:

    (a) Establish an interagency working group to develop 
recommendations for guidance, including compliance with the 
requirements of the National Environmental Policy Act, 42 
U.S.C.4321, 4331-4335, and 4341-4347, and training needs to 
implement this directive. The recommendations are to be developed by 
November 1994; and
    (b) Issue the guidance by April 1995.To the extent practicable, 
agencies shall incorporate this guidance into their landscaping 
programs and practices by February 1996. In addition, the Federal 
Environmental Executive shall establish annual awards to recognize 
outstanding landscaping efforts of agencies and individual 
employees. Agencies are encouraged to recognize exceptional 
performance in the implementation of this directive through their 
awards programs. Agencies shall advise the Federal Environmental 
Executive by April 1996 on their progress in implementing this 
directive. To enhance landscaping options and awareness, the 
Department of Agriculture shall conduct research on the suitability, 
propagation, and use of native plants for landscaping. The 
Department shall make available to agencies and the public the 
results of this research.
Fran McPoland,
Federal Environmental Executive.
[FR Doc. 94-20552 Filed 8-19-94; 8:45 am]
BILLING CODE 6560-50-P