Revised Policy and Procedures for Selecting and Funding Federal Aid in Sport Fish and Wildlife Restoration Projects

DEPARTMENT OF THE INTERIOR

Revised Policy and Procedures for Selecting and Funding Federal

Aid in Sport Fish and Wildlife Restoration Projects

AGENCY: Fish and Wildlife Service, Interior.

ACTION: Notice.

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SUMMARY: The U.S. Fish and Wildlife Service, Division of Federal Aid is

announcing a final revised policy and procedures for funding Federal

Aid administrative projects. Revisions to the policy were announced in

the Federal Register, July 8, 1993, (58 FR 36694) and the policy was

implemented as a pilot with the understanding that it would be

finalized at a later date. Comments were invited on the revised policy.

None were received from individuals or organizations outside of the

Fish and Wildlife Service (Service).

This final revised policy is based on comments received from the

Service's regional offices in response to the July 8 announcement. It

includes information on the amount of funding that will be made

available, as well as, the focus areas that will be used to review and

select projects that will be awarded in fiscal year 1995. The Service

is seeking proposals under this final revised policy for sport fish and

wildlife restoration projects. The requirements for submitting

proposals and selecting projects are provided in this notice.

DATES: Applications/proposals must be received by July 1, 1994.

ADDRESSES: Proposals must be submitted to: U.S. Fish and Wildlife

Service, Chief, Division of Federal Aid, MS 140 ArlSq, 1849 C Street

NW., Washington, DC 20240.

FOR FURTHER INFORMATION CONTACT:

Mr. Columbus Brown, Chief, Division of Federal Aid, U.S. Fish and

Wildlife Service; (703) 358-2156.

SUPPLEMENTARY INFORMATION: A revised policy was issued under a Federal

Register Notice on July 8, 1993. The policy was revised in response to

criticisms that it did not include a systematic procedure for notifying

potential applicants of the availability of Federal Aid Administrative

funds; that it was not being applied consistently and that it promoted

unrealistic expectations among applicants. Significant revisions to the

policy included requiring annual announcements of the availability of

funds through Notices in the Federal Register; establishing and using

focus areas as part of the selection criteria and announcing the focus

areas in the Federal Register. Focus areas will be used to further

promote and encourage efforts that address priority needs of the Fish

and Wildlife Service and the States. The revised policy was also

intended to clarify the roles and responsibilities of the Division of

Federal Aid's Washington and Regional Offices and it established

uniform requirements for all applicants.

Based on comments from the Service's regional offices, in response

to the July 8 Federal Register Notice, section J, paragraphs 1, 3, 4

and 5 and section L, paragraph 4 have been revised. The Service's

Regional Offices provide comments about their role in reviewing and

ranking proposals. Under the previous revised procedures, the Regions

were not involved in the eligibility determinations, instead, they

reviewed and ranked eligible projects and submitted their rankings

along with any comments and recommendations to the Washington Office.

The Regions commented that the best utilization of their expertise

would be during the review for eligibility and preparation of the award

agreements, after project selection. In response to those comments, the

policy was revised to include representatives from the Regional Offices

as joint participants with the Washington Office in the eligibility

review, including participation in the meeting during which the Chair,

Grants-In-Aid Committee (GIAC) sits as an observer. Additionally,

representatives from the Regional Offices will assist the Washington

Office in refining the project proposals and finalizing the grant

agreements.

Another revision to the policy includes placing a cap on the annual

amount of administrative funds awarded for any single project. This

requirement has been added to section E--Eligibility Requirements.

While this change was not made as a result of any comment, the

limitation is being established in response to growing concerns within

the Fish and Wildlife Service about escalating project costs.

Dated: April 19, 1994.

Mollie H. Beattie,

Director, Fish and Wildlife Service.

Policy and Procedures for Administrative Projects Funded by the Federal

Aid in Sport Fish and Wildlife Restoration Programs

A. Purpose

This statement establishes policies and procedures for selecting

and funding Federal Aid administrative projects. Administrative

projects are activities that assist the U.S. Fish and Wildlife Service

(Service) in administering Sport Fish and Wildlife Restoration Programs

and facilitate the efforts of the States in implementing these

programs.

B. Background

The mission of the Federal Aid Program is to strengthen the ability

of State and Territorial fish and wildlife agencies to meet effectively

the consumptive and non-consumptive needs of the public for fish and

wildlife resources. The Federal Aid in Sport Fish Restoration Act and

the Wildlife Restoration Act authorize the Secretary of the Interior to

cooperate with the States and to use administrative funds for carrying

out this mission.

Federal Aid Administrative Funds are those funds deducted from

amounts available under the Federal Aid in Sport Fish Restoration Act

and the Federal Aid in Wildlife Restoration Act. The statutory

provisions related to administrative deductions are as follows:

Federal Aid in Sport Fish Restoration (SFR)--Federal Aid

Administrative Funds for sport fish restoration may not exceed 6

percent of the deposits in the Sport Fish Restoration Account of the

Aquatic Resources Trust Fund. These funds may be used for

administrative projects for the ``conduct of necessary investigations,

administration, and the execution of this Act and for the aiding in the

formulation, adoption, or administration of any compact between two or

more States for the conservation and management of migratory fishes in

marine or fresh waters.'' (section 4 of the Act is amended by Pub. L.

98-369, 16 U.S.C. 777c)

Federal Aid in Wildlife Restoration (WR)--Federal Aid

Administrative Funds for wildlife restoration may not exceed 8 percent

of the excise tax receipts deposited in the Federal Aid in Wildlife

Restoration Fund. These funds may be used for the ``administration and

execution of this Act and the Migratory Bird Conservation Act.''

(section 4 of the Act, 16 U.S.C. 669c)

After making administrative deductions as specified above, the

remainder of the administrative funds will be apportioned to the States

in accordance with the formulas contained in the Acts. The Service will

strive to minimize administrative deductions in order to maximize

apportionments to the States.

C. Availability of Funds

In fiscal year 1995, the amount of administrative funds estimated

to be made available for administrative projects includes approximately

$1,400,000 for sport fish restoration, and $1,100,000 for wildlife

restoration.

D. Interstate Compacts

Interstate Compacts may also submit proposals for Federal Aid

Administrative Funds. Proposed projects must have discrete objectives

and will be subject to all of the requirements below.

E. Eligibility Requirements

The Division of Federal Aid, Washington Office, along with

assistance from the Regional Offices, will review each proposal and

determine if proposed projects are eligible for funding. To be eligible

for funding, projects must meet the following:

1. Projects must provide direct benefits to one-half or more of the

States at the national or broad geographic level to meet the needs of

the WR and/or SFR Programs.

2. Projects must have specific beginning and ending dates. The

maximum duration for any special project is three (3) years.

3. Project costs for any single year may not exceed $200,000.

4. Projects must meet the documentation requirements stated in

section G.

5. Projects must meet the minimum threshold of the selection

criteria stated in section I.

6. Projects must meet funding and award requirements contained in

section L.

7. Projects determined ineligible or that the Service elects not to

fund may not be reconsidered during the same year in which the proposal

was submitted.

F. Application Process

1. All proposals including funding requests for administrative

projects must be submitted to the Chief, Division of Federal Aid,

Washington Office. Proposals originating within the Service must be

approved by the appropriate Regional Director or Assistant Director.

2. Each year, a Notice will be published in the Federal Register

announcing the deadline for submitting proposals. The Notice will also

announce total Federal Aid funds available for wildlife and sport fish

restoration projects. A table with the approximate dates for each step

of the process is provided in Appendix A.

G. Submission Requirements

Each proposal submitted for Federal Aid Administrative Funds must

contain the following:

1. Title.

2. Background and Purpose.--Include a comprehensive statement that

describes the significance of the problem and addresses the need or

problem to be resolved, as well as a brief history of previous work and

a statement on State support of the project.

3. Scope of Work.--Include a description of work/objectives by year

if more than 1 year. State the time required to complete the project

and provide milestone to measure accomplishment of the objectives.

4. Expected results or benefits related to the States' fish and

wildlife programs--In addition to stating how the results will be

useful, provisions must be made for making the product or results

available and usable to those affected by the problem or need. Benefits

must be expressed in quantifiable terms, i.e., angler days, harvest per

unit effort, improvements to State administration, dollars saved, etc.

5. Resumes--Includes resumes and names of key individuals who will

be involved in the project, stating their particular qualifications for

undertaking the project.

6. Project Costs--Submit cost estimates showing total project costs

as well as the Federal and non-Federal shares. Multi-year project

proposals must include a summary budget showing funds required for each

year and an itemized budget for the first 12-month period. Estimates of

direct costs must be provided for each year for each of the subsequent

years. In addition, costs must be provided for:

a. Personnel.

(1) Include salaries of employees (by position title), amount of

the salaries attributable to the project and identify the percent of

each person's time spent on the project.

(2) Identify fringe benefits (amount only)--This entry should be

the proportionate cost of fringe benefits paid for time spent on the

project. For example, if an employee spends 20 percent of his/her time

on the project, 20 percent of his/her fringe benefits are charged to

the project.

b. Consultant--Identify specific tasks and work to be performed by

consultants, including the basis for the fee paid, e.g., hourly rate.

c. Contracts--Identify all work to be performed by contract. If a

commitment is made with a particular vendor, prior to applying for

funding, explain how the vendor was selected, type of contract,

deliverables expected, time frame, cost, and basis for the cost. All

contracts must meet the standards established in Office of Management

and Budget Circulars. Grants that are subcontracted are subject to

review for compliance with government procedures.

d. Travel and Per Diem--Identify number of trips to be taken,

purpose, and number of people to travel. Itemize estimated costs and

include transportation, per diem, and miscellaneous expenses. Travel

expenses shall be in accordance with rates specified by Federal travel

regulations. Registration fees should also be included.

e. Equipment--Identify equipment or items to be purchased or rented

that are necessary to support the project.

f. Supplies--Identify specific supplies necessary for the

accomplishment of the project. Consumable office supplies may be

included under Indirect Costs unless purchased in large quantity.

g. Indirect Costs--Identify those indirect costs where are based on

approved indirect cost rates with the Federal Government. Estimates may

be included pending approval of a negotiated Federal indirect cost

rate.

h. Other Costs--Identify any other costs not identified above that

are attributable to the project.

7. Proposals requiring multi-year funding must include goals for

each year of funding.

Appendix B contains a sample proposal along with explanations.

These rules do not contain information collection requirements

which require approval by the Office of Management and Budget under 44

U.S.C. 3501 et seq. The information collection requirements for this

grant program are those necessary to comply with 43 CFR Part 12, which

include (a) project narrative; and (b) compliance with Federal laws,

regulations, and policies. Recordkeeping includes the tracking of costs

and accomplishments (43 CFR 12.60), monitoring progress (43 CFR 12.80),

and evaluating accomplishments (43 CFR 12.81). Reporting requirements

include those required by 43 CFR 12.82. No additional information

collection will be contained in this rule.

H. Focus Areas

Focus areas are those specific areas in which the Service and/or

the States are seeking information and assistance in administering or

implementing the Sport Fish and Wildlife Restoration programs. Focus

areas will be determined each year by the Service, based on

recommendations from the Grants-In-Aid Committee (GIAC) in accordance

with the by-laws of the International Association of Fish and Wildlife

Agencies (IAFWA). Each year, the GIAC will be asked to submit

recommendations for focus areas after its September meeting. Each year

a Federal Register Notice will announce the Focus Areas, along with the

amount of funds available for administrative projects.

Focus areas that will be used to evaluate proposed projects for

funding in fiscal year 1995 are provided below:

Education--Includes training and/or instructing publics and/or

resource managers to enhance their knowledge base.

Projects that provide a better understanding of our

constituents and their needs and that provide innovative approaches to

reaching new hunters, anglers and boaters, including projects with

emphasis on minorities and women.

Projects that promote natural resource aquatic and

environmental education of students in kindergarten through grade 12;

including projects with new approaches to teaching hunting and fishing

ethics.

Outreach--Includes reaching out to publics with the expectation of

expanding opportunities.

Projects that include analysis of and that focus on the

values (economic and social) of fish and wildlife programs, enabling

greater public understanding of program benefits.

Management--Includes handling, directing and managing fish and

wildlife populations. The management focus links directly to resources

and hands-on responsibilities of fish and wildlife agencies.

Projects that employ new technologies and evaluation in

the restoration, creation, enhancement and/or protection of fish and

wildlife and their habitats.

Projects that provide for advancement of collection and

management of resource and harvest data on a regional or national

basis.

Projects that demonstrate restoration of fish and wildlife

habitats.

Administration--Includes service, supervision and management

responsibilities. The administrative focus links directly to supporting

fish and wildlife agencies' affairs.

Projects that identify strategies for future management of

fish and wildlife resources based upon changing social, economic and

political realities.

Projects that identify strategies concerning the future

management of fish and wildlife resource agencies based upon changing

social, economic and political realities.

I. Selection Criteria

Each eligible proposal will be reviewed and evaluated for the

following:

1. Focus Areas--Priorities and areas of need announced in the

Federal Register.

2. Scope--The problem or need addressed in the proposal is of

direct concern to one-half or more of the States. The scope of proposed

marine resources projects must also address a need that is of direct

concern to a majority of States on a specific coast.

3. Significance--The problem or need addressed is deserving of the

level of attention proposed and the proposed project is of substantial

character and design to address the problem.

4. Feasibility--The proposed objectives can be attained in the

amount of time and with the personnel and resources requested. Projects

must demonstrate tangible, identifiable benefits/results.

5. Cost-effectiveness--The expected output relative to the total

cost of the project is clearly favorable.

J. Proposal Review and Selection Process

1. Each proposal will be reviewed for eligibility as defined in

section E. The review will be conducted by the Washington office with

assistance from Regional Office staff. The final determination for

eligibility will be made at a meeting that includes staff from

Washington and the Regional Offices, with the Chair of the GIAC as an

observer.

2. All applicants will be notified that their proposal has been

determined eligible or ineligible.

3. Copies of eligible proposals will be forwarded to Service

Offices and the Chair, GIAC, along with lists of on-going grants and

ineligible proposals. The Chair, GIAC, will forward copies to the

voting members of the GIAC.

4. Service Offices may provide comments on the eligible proposals.

Voting members of the GIAC will review and rate each eligible proposal

high, medium or low.

5. All ratings from GIAC voting members and comments from Service

Offices will be returned to the Division of Federal Aid in Washington.

6. The Division of Federal Aid will summarize the ratings and

comments.

7. A summary of the comments and ratings will be provided to the

Chair, GIAC, for review at the GIAC September meeting. Copies of the

summary will also be provided to the Regional Offices.

8. During the September meeting of the IAFWA, the GIAC will

evaluate and rank eligible proposals based on the needs of the States.

The GIAC will forward its rankings and recommendations to the Service

in accordance with IAFWA procedures.

9. The Division of Federal Aid will summarize and consolidate the

all rankings, ratings and comments and develop recommendations for

project selections and awards. The recommendations may include a part

of any proposal or project for funding.

10. The Federal Aid Division's recommendations will be forwarded to

the Director of the Service. The Director will review the

recommendations and make the final decision on project selections and

funding.

11. The Service will notify each eligible applicant in writing of

the final disposition of their proposal.

12. The Director will notify the Regional Directors and the Chair,

GIAC, of the projects selected for funding.

K. Lobbying Restrictions

During the review of proposals, grant applicants may not engage in

any activities that might be considered as attempts to influence

reviewers or approving officials. If the activities are determined to

be lobbying, the proposal will be disqualified for Federal Aid

Administrative Funds.

L. Awards and Funding

1. Projects that are selected and that require more than 1 year of

funding will receive subsequent (2nd and/or 3rd) year funding based on

project accomplishments and satisfactory progress reports.

2. Funds awarded for administrative projects may not be used in

lieu of regular WR/SFR apportioned funds to support individual State

projects or for operational activities beyond development and

implementation.

3. Funds awarded to Fish and Wildlife Service offices may not be

used to replace operational funding. Salaries may be paid if related to

an approved project.

4. The Service's Division of Contracting and General Services will

prepare and sign the formal award agreement. The Federal Aid Washington

Office, along with assistance from the Regional Offices, may provide

technical assistance to the Division of Contracting and General

Services in finalizing the award agreements. The formal award agreement

will be forwarded to the awardee for signature and must be signed by

the Service and an authorized awardee official before it becomes a

valid agreement. This process may require up to 60 days to complete.

The Service is not responsible for costs incurred prior to the

effective date of a signed agreement; therefore, the starting date for

all projects should be planned accordingly.

5. Non-profit awardees must maintain a financial management system

in accordance with the Office of Management and Budget Circular A-110.

State and local governments must maintain a financial management system

in accordance with OMB Circular A-102 and 43 CFR part 12.

M. Project Administration

Projects awarded funding will be assigned to a Project Officer.

Project Officers are those persons representing the Contracting Officer

on technical matters relating to the responsibilities of the grantee.

They provide assistance that includes:

1. Assisting Service contracting officials in completing the award

agreement;

2. Serving as the Service's point of contact after the award

agreement is signed;

3. Receiving and approving bills; and

4. Monitoring project performance and assuring that the awardee

adheres to the award agreement.

Appendix A.--Summary of Events

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Target date Event

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April 1 (subject to change Washington Office issues Federal Register

in future). Notice announcing availability of Federal

Aid Funds and focus areas for grant

applications.

June 1 (subject to change in Washington Office receives proposals.

future).

June 30..................... Washington Office with assistance from the

regions determines eligibility (Chair of

the Grants-In-Aid Committee (GIAC)

participates as an observer).

July 15..................... Washington Office forwards copies of

eligible proposals to Regional Offices,

other Service offices, e.g. Migratory

Bird Office and Chair, GIAC, (Chair of

GIAC will distribute proposals to voting

members of the GIAC, includes Summary

list of on-going grants and list of

ineligible proposals).

July 15..................... Washington Office sends letters to all

applicants informing them that their

proposal is eligible or ineligible.

August 15................... Voting members of the GIAC forward

comments and ratings to Chief, FA

(Ratings of High, Medium or Low).

September 1................. Chief, FA, summarizes comments and ratings

and forwards to Chair, GIAC, for review

at the September meeting.

September 15................ GIAC reviews and ranks proposals and

forwards rankings and recommendations to

Washington, along with recommendations

for Focus Areas for the following year.

October 31.................. Washington Office with assistance from

regions, summarizes all ratings, rankings

and recommendations; Final

recommendations are forwarded to the

Director.

November 15................. Director selects projects for funding.

November 30................. Washington Office notifies applicants and

Chair, GIAC, of the final disposition of

proposals.

January-February............ Contracting and General Services awards

grants.

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Appendix B--Sample Proposal for the Use of Federal Aid Administrative

Funds

Submitted by Gwyllt Institute

I. Title

Economic Profiles, Data Analysis, and Survey Design for Sport

Fishing.

II. Background and Purpose

In the Fall of 1987, the U.S. Fish and Wildlife Service (Service)

released the data tapes of the 1983 National Survey of Fishing, Hunting

and Wildlife-Associated Recreation. In its current form the data tapes

are not easy for the States to use.

The Gwyllt Institute (Institute) proposes to produce State-specific

reports on the retail sales, jobs, wages and salaries, years of

employment, output, and tax receipts generated by sport fishing in each

State.

III. Scope of Work

The Institute will provide each State with a specially designed

software package for State-specific economic impact analysis. The

differences between the results of the National Survey and State data

collection efforts pertaining to the economic impact of sport fishing

will be analyzed by the Institute. The results of this analysis will be

used to make recommendations for the design of the 1990 Survey, as well

as a standardized format for economic questions on State surveys.

A. Description of Work/Objectives

1. The Grantee shall provide to each of the 50 States, Lotus 1-2-3

(or facsimile) spreadsheets that contain trade margins, location

quotients, economic multipliers, and tax rates specific to each of the

States. The Grantee shall provide a manual to accompany the

spreadsheets that will contain detailed instructions on how to use and

modify the spreadsheets to derive the economic impacts of sport

fishing, hunting, and wildlife-associated recreation.

2. The Grantee shall download all data from the National Survey

from the data tapes to State-specific diskettes. The fishing, hunting

and wildlife-associated data shall be on separate diskettes. The

diskettes must be accompanied by a software package that allows users

to download the data from the diskettes to a Lotus 1-2-3 (or facsimile)

spreadsheet.

3. The Grantee shall inform State Directors that workshops will be

held by the Institute in each of the Regions of the Service to train

State agency and Service personnel on how to use the spreadsheets to

analyze the economic impact of fishing or other natural resource uses,

using State data or Service data. These sessions will be held in

conjunction with the Regional Federal Aid meetings or the Regional

meetings of the International Association of Fish and Wildlife

Agencies. These sessions will be at no cost to the government.

4. The Grantee shall assist States by compiling and analyzing

State-specific studies and work with States toward assembling data into

a format useful for economic impact analysis.

5. The Grantee shall develop recommendations for modifications, if

needed, to the design of the 1990 Survey and work with the Responsive

Management Project on their economic modules.

6. The following milestones are applicable to paragraphs 1 through

5 above.

a. On a monthly basis, the Grantee shall submit written progress

reports to the Service Project Officer. Each report shall contain a

summary of the Grantee's efforts and activities for the reporting

period, including problems encountered and efforts undertaken for their

resolution.

b. Within 4 months after the effective date of this Agreement, the

Grantee shall distribute to each of the 50 States the following items:

(1) Data diskettes

(2) Software to access data diskettes

(3) Manual for diskettes and software

c. Within 6 months after the effective date of this Agreement, the

Grantee shall distribute to each of the 50 States the following items:

(1) Economic Impact Spreadsheets

(2) Manual for Economic Impact spreadsheets, and

(3) Existing State data and studies

d. During months 5 through 12, the Grantee shall participate in the

planned training sessions. (See section A.3. Description of Work/

Objectives.)

e. Within 8 months after the effective date of this Agreement, the

Grantee shall prepare the Senate data in the Impact format.

f. Within 10 months after the effective date of this Agreement, the

Grantee shall distribute copies of the Economic Impact Manual and

comments. one copy shall be submitted to the Service Project Officer.

g. Within 11 months after the effective date of this Agreement, the

Grantee shall submit to the Service Project Office an original and one

copy of recommendations for the 1990 Survey.

IV. Expected Results of Benefits

In 1985, 46.4 million anglers spent 976.6 million days and $28.1

billion pursing their sport. It is anticipated that providing economic

profiles for each State will allow State commissioners of fish and game

agencies to argue effectively for the necessary dollars to manage the

fishery resources from their respective State legislature. We

conservatively estimate that an additional 5 percent of shared

resources will be reallocated to recreational anglers.

V. Resumes

VI. Project Cost

A. Personnel:

Project Manager/Senior Economist (2

Months)............................ =$8,000

Resource economist (12 months)...... =$35,000

Secretary (6 months)................ =$10,000

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Subtotal........................ $53,000

Fringe benefits@ 20%--total......... $63,000 $63,000

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B. Consultant:

Computer Programmer (1 month)....... $5,000 $5,000

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C. Travel and Per Diem (To consult with

Federal Aid--Seattle, WA, to

Washington, DC:

Size of staff--1

Duration (days)--3

Air Fare............................ =$385

Per Diem............................ =$240

Rental Car.......................... =$75

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Total........................... $700 $700

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D. Equipment:

Diskette Storage Cabinet............ =$1,300

Mainframe Computer Time (100 hrs. @

$50)............................... =$5,000

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Total........................... $6,300 $6,300

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E. Supplies:

Diskettes (3,500 @ $1.00)........... =$3,500

Printing (50 manuals @ $20)......... =$1,000

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Sub-Total....................... $4,500 $4,500

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$79,500

F. Indirect Costs @ 12% (rate as

established by previous Federal audit). =$9,540 $9,540

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Grand Total..................... $89,040 $89,040

Note: Cost of training sessions is being funded by other that

Federal Government sources.

[FR Doc. 94-13027 Filed 5-27-94; 8:45 am]

BILLING CODE 4310-55-M