[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]
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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
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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.
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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'',
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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]
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