American Heritage Rivers Initiative

COUNCIL ON ENVIRONMENTAL QUALITY

American Heritage Rivers Initiative

AGENCY: Council on Environmental Quality.

ACTION: Proposal With Request for Comments--Re-Issue of May 19, 1997

Notice With Clarification Section and Revised Schedule.

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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 charter of the interagency task force is to integrate

the environmental, historic and economic programs and services of

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 historical and

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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 5:00 p.m., EST, August 20, 1997.

Written comments are required.

ADDRESSES: Comments should be addressed to: Executive office of the

President, Council on Environmental Quality, Old Executive Office

Building, Room 360, Washington, DC 20501. Fax: 202-456-6546. E-mail

address: AHR[email protected].

FOR FURTHER INFORMATION CONTACT:

Karen Hobbs, Agency Representative, Council on Environmental Quality,

Old Executive Office Building, Room 360, Washington, DC 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.

Clarification to the Federal Register Notice of May 19, 1997

The proposal outlining the American Heritage Rivers initiative

first appeared in the Federal Register Notice on May 19, 1997. The

following points are intended to clarify issues raised over the last

month.

The American Heritage Rivers nomination is a voluntary,

community-defined effort.

The American Heritage Rivers initiative imposes no new

federal regulations for individuals or state, tribal and local

governments.

Nominations for designation as an American Heritage River

must demonstrate broad support of the local community.

Foreign governments and their international organizations

will not have a role in sponsoring a nomination to be an American

Heritage River nor will they have any authority granted to them as a

result of an American Heritage River designation.

Any community which nominates a river for designation and

has its river designated, may have this designation terminated at its

request at any point in the future.

A local mechanism will be required that allows members of

a community to comment on the nomination of a river or river stretch by

their community.

All comments received between May 19, 1997 and August 19, 1997 will

be considered.

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 River 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, development

partnership and delegating power to the front lines. The Administration

believes that a successful initiative will be community-led flexible,

coordinated, broad, partnership-based, and action-oriented.

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 effect

rivers, and this work will 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. 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 effect 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 designate 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.

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3. Coordinated Delivery of Federal Services

Programs exist in numerous federal agencies, including the

Department 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 on 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 these 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 from

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 sizes or

larger with one inch margins. Letters of endorsement and support and

maps describing the proposed designated area will not count toward 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.

Information about qualifying and selection criteria and the

selection process is available to the public and clearly explained in

the application 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 is 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,

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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 Qualifies

There is 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 qualifies 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);

Schedule 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,'' 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

in 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 country name to locate a particular river, and then ``point

and click'' for information about that river,

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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 of 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 interest. 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 exiting 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

Albuquerque, 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-August: Federal Register Notice of Draft Program Design, with

Comment Period

August: Cabinet Recommends Initiative Design to President

September: Federal Register Notice of Final Program, Open Nominations

December: Applications Due

January: Designated Rivers Announcements

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: June 18, 1997.

Kathleen A. McGinty,

Chair, Council on Environmental Quality.

[FR Doc. 97-16378 Filed 6-18-97; 1:36 pm]

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