[Federal Register Volume 62, Number 96 (Monday, May 19, 1997)]
[Notices]
[Pages 27253-27256]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 97-13210]


=======================================================================
-----------------------------------------------------------------------

COUNCIL ON ENVIRONMENTAL QUALITY


American Heritage Rivers Initiative; Proposal With Request for 
Comments

SUMMARY: In the State of the Union Address, President Clinton announced 
that he had directed his Cabinet to design an initiative to support 
communities in their efforts to restore and protect America's rivers. 
The White House subsequently convened an interagency task force to 
develop what has come to be known as the American Heritage Rivers 
initiative. The charger of the interagency task force is to integrate 
the environmental, historic and economic programs and several federal 
agencies to benefit communities. The agencies designing this initiative 
include the Departments of Agriculture, Commerce, Defense, Energy, 
Interior, Justice, and Housing and Urban Development, the Environmental 
Protection Agency, Advisory Council on Historic Preservation, Army 
Corps of Engineers and the National Endowment for the Humanities.
    There are many citizens, nongovernmental organizations and local, 
state and tribal governments working to restore and revitalize their 
river communities. The Administration is creating the American Heritage 
Rivers initiative to help these communities restore and protect their 
river resources in a way that integrates natural resource protection, 
economic development, and the preservation of historic and cultural 
values. This initiative proposes to assist these communities through 
better use of existing programs and resources and coordinating the 
delivery of those services in a manner designed by the community, or 
``bottom-up.''
    Under this program, the President will designate ten rivers as 
American Heritage Rivers in calendar year 1997. These designated rivers 
will receive special recognition and focused federal support and will 
serve as models of the most innovative, economically successful and 
ecologically sustainable approaches to river restoration and protection 
for communities across the United States. In addition to the ten rivers 
receiving designation, the initiative will provide improved information 
and services for all river communities. The initiative will create no 
new regulatory requirements for individuals or state and local 
governments.

DATES: Comments must be received by June 9, 1997.

ADDRESSES: Executive Office of the President, Council on Environmental 
Quality, Old Executive Office Building, Room 360, Washington, D.C. 
20501. Fax: 202-456-6546.

FOR FURTHER INFORMATION CONTACT:
Karen Hobbs, Agency Representative, Council on Environmental Quality, 
Old Executive Office Building, Room 360, Washington, D.C. 20501. Phone 
202-395-7417; Fax: 202-456-6546.

SUPPLEMENTARY INFORMATION: This notice is available on the American 
Heritage Rivers Internet Homepage at: http://www.epa.gov/OWOW/heritage/
rivers.html. This document is divided into four sections: background on 
the American Heritage Rivers initiative; overall program design; 
benefits of designation and the designation process; and services 
available to all river communities. Comments are sought on the 
usefulness of the initiative, its design, and ways in which the federal 
government can support communities.

Background

    Rivers have always been an integral part of our Nation's history--
providing opportunities for trade and commerce, routes for exploration 
and discovery, inspiration for ideas and culture, means of recreation, 
and focal points for community development. Rivers often define the 
distinctive character of communities. To capture or restore that 
distinctive character, communities across America are working to 
revitalize their waterfronts, and to enhance the historic, cultural, 
recreational, economic, public health, and environmental values of 
their rivers. Federal and state governments enact laws and impose 
regulations to clean up pollution and improve water quality. The goal 
of the American Heritage Rivers initiative is to support communities 
(hereafter referred to as River Communities), within existing laws and 
regulations, by providing them with better access to information, tools 
and resources, and encouraging private funding of local efforts 
deserving of special recognition.
    The development of this initiative has been guided by six 
principles. The Administration believes that a successful initiative 
will be community-led, flexible, coordinated, broad, partnership-based, 
and action-oriented. These principles embody the Administration's 
effort to reinvent government in accordance with the National 
Performance Review. The National Performance Review, directed by Vice 
President Gore, seeks to create a government that works better and 
costs less through focusing on customer service, developing 
partnerships and delegating power to the front lines.

Overall Program Design

    The initiative will be driven by the needs and desires of 
communities that wish to participate in the program. Communities 
already work with the federal government in numerous ways that affect 
rivers, and this work will

[[Page 27254]]

continue. The initiative will make national expertise available to 
community-based restoration, protection and revitalization efforts, and 
will simplify community access to existing federal resources. The 
initiative will actively promote successful models that demonstrate 
private and public collaboration to preserve the special heritage 
associated with our rivers, and share this information through a 
clearinghouse.
    The American Heritage Rivers initiative will have two components:
     Enhanced services and program delivery to designated 
rivers; and
     Improved delivery of services and information.

Part I: Benefits of Designation and the Designation Process

    The President will designate, by proclamation, ten rivers in 
calendar year 1997. These designated rivers will receive focused 
support in the form of programs and enhanced services, including a 
``River Navigator'' (formerly referred to as a ``caseworker'' in public 
meetings and earlier documents) to work with the community to provide 
access to the federal agencies and existing programs and to simplify 
the delivery of these programs. Designated rivers and their communities 
will also receive a commitment from federal agencies to act as ``Good 
Neighbors'' in making decisions that affect communities. Each river 
will become a laboratory for reinvention of federal programs and 
delivery of services that will support each Community's revitalization 
efforts.

1. Presidential Proclamation

    Communities designated as American Heritage Rivers will receive 
recognition by proclamation of the President of the United States.

2. ``River Navigator''

    Each designated river will be assigned a ``River Navigator'' to 
help implement the community's vision and provide a single contact/
liaison for all federal resources.

3. Coordinated Delivery of Federal Services

    Programs exist in numerous federal agencies, including the 
Departments of Agriculture, Interior, Army, Housing and Urban 
Development, the Environmental Protection Agency and others to support 
rivers. An interagency task force, established to oversee the 
development of the initiative in Washington, D.C., will reduce 
duplication in and of programs, coordinate and leverage streamlined 
resources, and pay particular attention to designated rivers.
    The interagency task force will work with each River Community as 
it is designated to identify technical and funding needs. First, a team 
of planning and technical assistance experts will help each designated 
River Community assess its strategy and implementation plan to identify 
technical assistance and funding needs. Then, federal agencies will 
commit field staff and resources to the teams, which will also include 
non-federal partners, such as state, local, tribal governments and 
nongovernmental organizations, as well as other partners. Technical 
assistance, education, funding and high quality aerial photography and 
maps will help identify and evaluate historic, environmental and 
economic resources. Planning assistance and community outreach will 
ensure a well-defined action strategy and a broad base of support. 
Training in soil and water quality testing will help communities 
develop a baseline against which to measure progress and environmental 
monitoring will help communities develop a report card in river 
conditions and trends. Economic modeling will help communities assess 
benefits and costs of proposed river projects. Interpretative 
techniques will identify the unique aspects of the American settlement 
of the community. The teams will help to implement the ``Good Neighbor 
Policy'' (discussed below). Through the establishment of the teams, 
federal agencies will seek stronger intergovernmental partnerships with 
state, local and tribal governments to streamline and speed the 
delivery of services and programs. Individual program services will be 
simplified and expedited, within existing laws and mandates. For some 
River Communities, Performance-Based Organizations will be established. 
A Performance-Based Organization, an idea championed by Vice President 
Gore and the National Performance Review, is granted flexibility for 
certain bureaucratic requirements in exchange for a commitment to 
achieve ambitious performance-based goals. In addition, regional and 
state personnel of federal agencies will assess their successes and 
implementation problems associated with the initiative, and make 
recommendations for improving delivery and accessibility of services 
and programs.

4. ``Good Neighbor Policy''

    Federal agencies will commit to a ``Good Neighbor Policy'' under 
which they will help ensure that their actions have a positive effect 
on the natural, historical, economic and cultural resources of American 
Heritage River communities.
    The interagency task force will develop ways to inform communities 
and federal agencies about American Heritage Rivers goals and 
objectives to ensure that federal actions are complementary to these 
goals. The ``Good Neighbor Policy'' will require the federal agencies 
to identify ways to inform local groups regarding federal actions and 
will require agencies to consult with American Heritage River 
communities early in the planning stages of federal actions and take 
into account the community's goals and objectives.

5. Private Sector Opportunities

    The Administration will encourage nongovernmental organizations, 
businesses and other partners to work with state, tribal and local 
governments to restore, protect, and revitalize American Heritage 
Rivers that run through their communities.

How Do River Communities Nominate a River?

    Communities wishing to nominate their river must meet basic 
criteria and complete a nomination form. The nomination will require 
information from the nominating River Community, such as:
    1. A brief description of the proposed American Heritage River 
area;
    2. A brief description of how the proposed American Heritage River 
meets the qualifying criteria;
    3. The names, addresses and phone numbers of sponsors listed 
separately. Letters of endorsement and support are highly recommended.
    Nominations must be no more than 15 pages, 10 point type size or 
larger with one inch margins. Letters of endorsement and support and 
maps describing the proposed designated area will not count towards the 
15 page limit. Due to the constraints of the review and selection 
process, additional materials, such as videos, photographs and/or 
plans, will not be considered. E-mail transmissions of the applications 
will be accepted.
    Information about the American Heritage Rivers initiative is 
readily available to all River Communities through personal contacts, 
Internet access, a toll-free phone line and written materials. Federal 
agency field staff will receive special orientation on the initiative 
to enable them to answer river community questions. Special emphasis is 
given to outreach methods for minority and low income communities.

[[Page 27255]]

    Information about qualifying and selection criteria and the 
selection process is available to the public and clearly explained in 
the application package as well as in other information media (such as 
those listed above).

Who May Put Forward Nominations?

    Any River Community working to improve, protect or revitalize a 
river is eligible to nominate a river area. A River Community is self-
defined by the members of the community. It can include private 
citizens, landowners, educational and arts organizations, community 
leaders, economic developers, businesses, nonprofit organizations, 
public and private institutions, local and state government agencies, 
Indian tribes, elected officials, and/or other parties within and 
adjacent to the proposed area or areas that support the designation and 
the goals of American Heritage Rivers.

Scope of Area Covered by Nomination

    A River Community will define the area covered by the nomination 
and should reflect the River Community's capability to implement its 
plan of action. The length of the area, whether it be an entire 
watershed, the length of an entire river, or a short stretch of a 
river, may cross jurisdictional boundaries (if supported by that 
government and community through letters of support and endorsement).

What Are the Qualifying Criteria?

    The qualifying criteria are intended to be broad, flexible and 
credible. Designation is available both to community-led efforts that 
are well underway and to communities just beginning. In making a 
nomination, sponsoring communities or organizations must demonstrate 
broad community support; notable resource qualities; local and regional 
partnership agreements; strategies that lead to action; and an ability 
to achieve measurable results.
1. Broad Community Support
    A broad spectrum of private citizens, such as landowners, 
businesses, educational and arts organizations, community leaders, 
economic developers, nonprofit organizations, public and private 
institutions, local and state government agencies, Indian tribes, 
elected officials, and/or other parties within and adjacent to the 
proposed area or areas support the designation and the goals of 
American Heritage Rivers.
2. Notable Resource Qualities
    There are within the proposed river area (as defined by the 
community or organization) a range of natural, economic, scenic, 
historic, cultural, and/or recreational features that demonstrate 
distinctive qualities of America's river heritage.
3. Local and Regional Partnership Agreements
    The principal party or parties nominating the river and local or 
regional governmental entities show their willingness and capability to 
enter into new, or to continue and expand existing, partnership 
agreements with each other as well as with federal and state agencies, 
Indian tribes, and/or other parties to implement a plan for the river 
area.
4. Strategies That Lead to Actions
    The principal local sponsoring party or parties has in hand, or is 
developing, a broad plan of action for the river area. Any actions 
planned on the designated area should not impact downstream 
communities. At a minimum, the strategy includes the following 
components:
     Community vision;
     Operating procedures and policies;
     Description of how the proposal takes into account 
existing plans for the area;
     Public participation and public education;
     Projects and products (including any anticipated impacts 
beyond the designated river area);
     Resources committed and anticipated (including means for 
generating additional and matching support from both public and private 
sources;
     Schedules of actions;
     What the community expects the federal role to be;
     Obstacles to community action, including those the 
community believes can be resolved by joint federal, state and local 
support;
     Measures of success.
5. Measurable Results
    Implementation of the community's vision must result in measurable 
benefits to the river community reflecting the community's goals, 
including, but not limited to, protection of water resources and/or 
public health, restoration of rivers, protection and highlighting 
historic and cultural resources, revitalization of local and regional 
economies, and/or implementing sustainable development within the river 
area.

What are the Selection Criteria?

    A selection council, convened by the President and discussed below, 
will, for those nominations meeting the qualifying criteria, also seek 
to ensure that, individually or as a group, American Heritage Rivers 
will exemplify America's river heritage at its best, in all its 
natural, historic, cultural, social, economic, and ecological 
diversity. The selection council will judge whether the designated 
rivers will showcase a variety of stream sizes and situations, in 
urban, rural, and mixed contexts. They will also assess the potential 
for an American Heritage River to showcase one or more innovative 
programs in such areas as watershed planning, historic preservation, 
wildlife management, fisheries restoration, community revitalization, 
floodplain management and recreation. Applicants should keep in mind 
the selection criteria in their responses to the qualifying criteria.
    In addition, designated rivers will be able to benefit 
significantly from a broad range of refocused or retargeted federal 
programs or other assistance and help generate broader public support 
for the goals and guiding principles of American Heritage Rivers as 
excellent examples and models for emulation throughout the Nation.
Evidence of Support
    The ability of a River Community to achieve its goals of river 
quality improvement and economic and community revitalization will 
depend on the cooperation of state, tribal and/or local officials, as 
well as strong partnerships with nongovernmental and community 
organizations. If a state, tribal and/or local government(s) nominates 
a watershed, river or river stretch, letters of support from 
nongovernmental organizations and community groups are highly 
recommended. If a nongovernmental organization(s) nominates a 
watershed, river or river stretch, letters of support from state, 
tribal and/or local units of government are highly recommended.
Number of Designations
    The President will designate ten rivers in calendar year 1997. The 
experience gained from the designated rivers and the level of community 
support for the initiative will guide future river designations.
Terms of Designation
    Designation will generally be considered permanent, subject to 
implementation of the community's plan of action. The ``River 
Navigator'',

[[Page 27256]]

however, will be for a term not to exceed five years.
Selection Council
    An interagency task force, composed of the heads of federal 
agencies, will make recommendations to the President regarding 
designations. The Administration is considering options on how to 
include the opinions of the public and experts from a variety of fields 
this decision-making process.

Part II: Services Available to all River Communities

    All River Communities will be able to take advantage of improved 
delivery of existing federal agency services and greater access to 
information. Federal agencies will use existing staff, resources and 
programs to assist all River Communities in their river restoration and 
community revitalization efforts.

1. Improved Delivery of Existing Services and Programs

    During the first year, federal agencies will focus on improving 
service and program delivery to the designated river communities, but 
will also implement methods to improve information access and service 
delivery to all river communities. There will be an emphasis on 
establishing stronger intra-and inter-agency communications systems and 
incentives and performance measures for field staff to rely more on 
partnerships with other federal agencies. Special emphasis will be 
given for outreach to minority and low income communities.

2. Information

A. Internet Services
    A ``State of the Rivers'' Home Page will provide information via 
the Internet on river conditions and demographics of river communities. 
Visitors to the American Heritage Rivers initiative Home Page will also 
be able to access Web Pages devoted to the ``State of Your River,'' 
(modeled on EPA's Surf Your Watershed program) which will in turn link 
to various sources of information. For example, a person might use a 
zip code or county name to locate a particular river, and then ``point 
and click'' for information about that river, such as drinking water 
sources, land use, or population. From the American Heritage Rivers 
initiative Home Page, a user will be able to link to the Home Pages to 
all participating federal agencies to access information on such topics 
as economic modeling, available grants, teaching guides and where to 
get aerial photographs and advice from experts.
    An American Heritage Rivers Riverfront Internet Page will present 
users with a broad array of goods and services from which to choose. 
This electronic tool kit will be customer-driven, so that users can 
easily scan the tools available and quickly find and obtain those that 
best fit their community's interests. The Riverfront Internet Page will 
be divided into the following categories: facts and maps; getting 
started; assistance yellow pages; local action, building partnerships; 
and knowing your assets.
B. ``Talent Bank''
    A ``talent bank'' will share knowledge and techniques about 
community river restoration and revitalization efforts. The ``talent 
bank'' will build on existing expertise and provide access to creative 
ideas for addressing river goals and needs; real world experience in 
translating those ideas into practical; workable action; and expertise 
(professional, technical, organizational, financial or other skills) 
for helping carry out particular projects or other aspects of community 
plans. It will be available on both the Internet and in hard copy.
C. Catalog of Federal Support
    A catalog of federal support will be developed and made available 
via the Internet, as well as in hard copy. Whether on the Internet or 
in hard copy, this information is intended to provide hands-on, step-
by-step help to communities that are just beginning to restore and 
revitalize their rivers. The information will consist of brochures, 
``how-to'' pamphlets, a bibliography, and videos.

Next Steps

    Specific input is sought on the following:
    a. Overall design of the American Heritage Rivers initiative.
    b. Qualifying and selection criteria.
    c. Nomination and selection process.
    d. Types of assistance needed by communities working on rivers, 
including comments on existing or needed federal programs and services.
    During April and May, the interagency team sought ideas from 
communities and interested parties to establish criteria for river 
selection, to determine how rivers will be designated, and to propose 
how the initiative will be implemented. The following cities hosted 
meetings, with the approximate number of attendees in parentheses:

April 7  Washington, D.C. (100 attendees)
April 14  Washington, D.C. (40 attendees)
April 16  Alburquerque, New Mexico (60 attendees)
April 22  Boston, Massachusetts (40 attendees)
April 25  Philadelphia, Pennsylvania (80 attendees)
April 28  Atlanta, Georgia (40 attendees); Chicago, Illinois (120 
attendees); San Francisco, California (30 attendees)
April 29  Los Angeles, California (30 attendees)
April 30  Seattle, Washington (40 attendees)
May 1  Asheville, North Carolina (60 attendees)
May 7  Denver, Colorado (50 attendees)

    The schedule for subsequent action is as follows:

May/June:  Federal Register Notice of Draft Program Design, with 
Comment Period
June:  Cabinet Recommends Initiative Design to President
June:  Federal Register Notice of Final Program, Open Nominations
August:  Applications Due to Be Considered For the First Round Of 
Designated Rivers
Fall/Winter:  Designated Rivers Announced & Applications Due To Be 
Considered for the Second Round

    After comments from the Federal Register notice have closed, the 
Cabinet will incorporate changes and suggestions into the design of the 
American Heritage Rivers initiative before forwarding it to the 
President for approval. If the President approves the initiative 
design, it is expected that the President will direct his Cabinet to 
implement the American Heritage Rivers initiative.

    Dated: May 15, 1997.
Kathleen A. McGinty,
Chair, Council on Environmental Quality.
[FR Doc. 97-13210 Filed 5-16-97; 8:45 am]
BILLING CODE 3125-01-M