m)
Wetlands Action Plan
EPA's Short-term Agenda
in Response to Recommendations
of
The National Wetlands Policy Forum
Prepared by
Off ice of Water
Office of Wetlands Protection
January 1989
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EPA WETLANDS ACTION PLAN
WHAT IS TILE NATIONAL WE’IlANDS POLICY FORUM?
Protection of wetlands is a top priority of EPA. In the absence of a conscious
decision on how we as a nation want to treat these valuable resources, wetlands are
being degraded and destroyed bit by bit. “Wetlands” is a collective term for a set of
vegetated aquatic environments which include such areas as bogs, marshes, swamps and
riparian corridors (forested wetlands), and prairie potholes. This nation has already lost
over half of its original wetland acreage. We continue to lose wetlands at an alarming
rate estimated from 300,000 to 450,000 acres per year. In some regions the losses are
even more dramatic, such as in coastal Louisiana where we lose as many as 40-50
square miles of wetlands per year or in California or Iowa where over 90% of the
original wetland acreage is already lost. In addition, unknown numbers of wetlands
have been degraded by pollution, and by hydrological and physical changes. When
these wetlands are destroyed or degraded, we lose many vital functions they perform,
including habitat for wildlife, fish, and shellfish; water quality enhancement; recreational
and scientific research opportunities; production of organic material which supports
intricate food chains; and protection from flooding and erosion.
EPA plays an important role in wetlands protection. The cornerstone of our
efforts is the regulatory program under Section 404 of the Clean Water Act. EPA
jointly administers this program with the Army Corps of Engineers. However, many
activities which adversely affect wetlands are not adequately regulated under Section
404. EPA conducted a strategic planning study beginning in 1985 to assess the
problems associated with wetlands and determine what directions EPA should take to
enhance our wetlands protection efforts. In October 1986, EPA created an Office of
Wetlands Protection (OWP) within the Office of Water to strengthen EPA’s
commitment to wetlands protection.
In the Spring of 1987, EPA’s Administrator asked the Conservation Foundation
to convene and facilitate a national forum on wetlands issues. Although EPA provided
initial funding, additional funding came from several foundations. The Conservation
Foundation conducted an initial assessment, talking to over 200 people involved in
wetlands to identii the key issues and the interests which should be represented on the
Forum. The National Wetlands Policy Forum operated independent of existing
institutions in order to take a step back from the ongoing policy debates.
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Governor Thomas Kean of New Jersey chaired the Forum’s efforts. The twenty
members of the Forum are leaders from a very broad range of interests including: state
and local governments; real estate developers; oil/gas industry; agriculture; forestry;
environmental and conservation groups; and academic experts in wetland policy and
science. EPA participated on the Forum along with the four other key federal agencies
as cx officio members.
On November 15, .1988, the Wetlands Forum issued its report, “Protecting
America’s Wetlands: An Action Agenda”. The report contains over 100 specific actions
for all levels of government and the private sector. A subgroup of the Forum will work
on implementation of the recommendations over the next year. The full Forum will
reconvene in one year to assess the success of implementation and consider additional
actions needed.
WHAT WILL EPA DO AS A RESULT OF THE FORUM?
EPA has adopted the goal of the National Wetlands Policy Forum to achieve no
overall net loss of the nation’s remaining wetland base, as defined by acreage and
function; and to restore and create wetlands, where feasible, to increase the quality and
quantity of the nation’s wetlands resource base.
EPA has developed this Action Plan as a first step to respond to the Forum’s
recommendations as fully as we can within existing resource constraints. The plan
outlines EPA’s objectives and some of the major steps EPA has underway or plans to
initiate which implement specific Forum recommendations under EPA’s scope of
influence. The plan does not encompass the full range of activities of OWP or other
EPA offices. Rather it highlights actions most relevant to the Forum recommendations.
OWP will spearhead these actions along with EPA’s ten regional offices. EPA’s Office
of Research and Development (ORD) is currently addressing some of the Forum’s
research recommendations through its wetlands research program, and program
expansion is planned. EPA will develop additional actions needed in future years to
more thoroughly implement the Forum’s template for improving wetlands protection
and management. Through the budget planning process, EPA will recommend that
these additional actions take place.
Executive and Statutory Changes:
EPA will call for and participate in revisions to Executive Order 11990 to
incorporate the Forum’s goal and key recommendations.
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EPA will also work with other agencies and with Congress on the recommended
legislative changes. In particular, EPA will examine the following:
Recom.mendations to improve the water quality and wetlands protection benefits
of farm programs (particularly Swampbuster and Conservation Reserve
programs) in the reauthorization of the Farm Bill in 1990.
Important legislative issues associated with the Clean Water Act including:
expanding the activities covered by the permit program; providing adequate
incentives for the states to assume the entire permit program; and providing a
statutoiy framework for the planning requirements suggested by the Forum.
Expansion of the areas set aside under the Coastal Barrier Resources Act
(CBRA) to include wetlands and other critical aquatic habitats, and other
undeveloped coastal areas. EPA will also examine the application of the CBRA
approach to protect vital freshwater inland wetlands as well.
As part of the Resource Conservation and Recovery Act (RCRA) reauthoriza-
tion process, amendments to improve our ability to protect wetlands and other
waters of the United States from ecological damages due to discharge of solid
waste. EPA will also explore amendments to the Superfund Amendments and
Reauthorization Act of 1986 to allow access to the Superfund for the purpose of
restoring ecological damages to wetlands at Superfund sites.
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GOAL TO PROTECT THE NATION’S WETLANDS
EPA has adopted the goal of the National Wetlands Policy Forum to achieve no
overall net loss of the nation’s remaining wetland base, as defined by acreage
and function; and to restore and create wetlands, where feasible, to increase the
quality and quantity of the nation’s wetlands resource base. Consistent with this
goal, EPA will review and, when necessary, revise its programs to protect the
chemical, physical, and biological integrity of wetlands.
In order to assess progress towards achieving the national goal, ORD will
develop indicators to monitor the environmental health of wetland ecosystems and
establish a program in coordination with Fish and Wildlife Service to track changes over
time. The scale for assessing progress towards the goal has not yet been finalized.
However, watersheds or ecological wetland regions seem to be the most appropriate
scale.
To implement this goal, EPA has established the following seven objectives:
A. WETLANDS PLANNING INITIATIVE
EPA will provide technical support and participate in the application of planning
approaches to protect wetland resources including the preparation of State Wetlands
Conservation Plans.
B. MECHANISMS TO INCREASE STATE I U)CAL ROLE IN WFFL4NDS
PROTECTION
EPA will provide guidance, technical assistance and support to enhance the role of
state and local governments in both regulatoty and nonregulatory wetlands protection
efforts.
C. SECTION 404 REGUlATORY ‘FIXES
Enforcement - EPA will increase enforcement through the application of
administrative and judicial penalty authorities. EPA will work with the Corps to
increase enforcement against unpermitted discharges into wetlands.
Guidelines - EPA will work with the Corps to reduce uncertainty and confusion
regarding the implementation of the Section 404 permit program an4 in particular,
to address key provisions in the Section 404(b) (1) Guidelines through guidance and
staff training.
Jurisdiction / Delineation - EPA will work with the Corps, Fish and Wildlife Seivice,
and Soil Conservation Service to establish and implement a single delineation
methodology for jurisdictional wetlands.
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D. MITIGATION POLICY
EPA actions will reflect a policy that unavoidable wetland impacts should be fully
offset by wetlands restoration or creation. EPA will work with the other key federal
agencies in the Section 404 pemtit program to develop a Join: mitigation policy
which reflects the Forum’s mitigation recommendations, focusing in particular on the
goal of no net loss of wetlands.
F .. INYORMATION & EDUCATION
EPA will work to increase public awareness of wetland functions and values, of the
Clean Water Act regulatory programs affecting wetlands, and of nonregulatory
approaches for protecting wetlands.
F. CLYMIJIATIVE IMPAC’IS
EPA will develop and test methods for assessing the cumulative effects of wetland
loss and degradation. EPA will work to incorporate these assessment approaches
into comprehensive planning and permit decisions for wetlands.
G. WETlANDS RESVFORATION
EPA will identify opportunities and initiate projects to restore arid create wetlands to
increase the quantity and quality of wetlands and to meet other national
environmental goals including those of the Clean Water Act. EPA will also identify
areas appropriate for wetland restoration based upon advance planning processes
and consideration of cumulative impacts such as point or nonpoint source problems
within watershed areas.
The following sections identifSr major EPA actions under each of the seven objectives.
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REGIONAL RIGHLIGHT
REGION VI: Dallas, Texas
COASTAL LOUISIANA INITIATIVE
The Forum specifically mentions coastal Louisiana as a problem area suffering extremety high wetland
losses from erosion and subsidence . The Forum suggests targeting this area for restoration as well as
protection. In Louisiana, which has forty pereent of the coastal marshes in the United States, eighty percent of
the coastal losses are ocourring. If the loss rate of forty to sixty square miles of wetlands per year continues
the Gulf shoreline will retreat inland as much as thirty-three miles in some areas in 50 years. Meeting the
Forum’s national goal in this area will be a particularly difficult challenge. Region VI has identified coastal
Louisiana as a special initiative for study arid action. The Forum calls for a coherent framework to link vanous
wetland protection efforts together. Invotvement In and coordination of niany different approaches are needed
to address the complex problems In coastal Louisiana. Region VI is approaching the issues from several
perspective& Planning; Research and Demonstration Projects; and Regulation.
Planning
Region v i is taking an active role in all major planning efforts related to wetland losses to ensure that the
broad array of wetland cbaracteristirs and values are considered (e.g, ftsheries, wildlife, water quality, flood
storage, water supply, and recreation values), and to ensure consistency with the Clean Water Act regulatory
program. These interagency efforts include
New Orleans District Corps - Lousiana Comprehensive Coastal Wetlands Plan
• Louisiana Marsh Management Strategies
• Corps Marsh Management Programmatic Environmental Impact Statement
* Corps I.and Loss and Marsh Creation Study
• Louisiana Coastal Area Shore and Bamer Island Initiative
• Environmental Impact Statements for designating Corps dredge disposal sites
Research and Demonstration Protects
Region VI is participating in the followmg
o Cumulative impact assessment of lasses in the Pearl River Basin
• Advance Identification of pnority wetlands near Slidell, Louisiana
Designation of Barrataria Bay Basin into the National Estuary Program
• Atchafalaya Basin Delta Creation Studies
• Louisiana Coastal Area- Mississippi River Delta Study
• Interpreting and digitizing aerial photos of coastal LA
• Mapping, field monitoring, impact assessment of marsh management areas
• Oil/Gas operations impacts handbook for wetland managers
• Golden Meadows Plant Materials Laboratory erosion control
• Gulf of Mexico Program
Regulation
Region VI will untirwe to focus on review of about 1000 IndivIdual stal Section 404 permits each year, and
vrk toward compliance with the Clean Water Act Section 404(b)(I) Guidelines through 404(q) elevations and
404 (c) actions. The Region will increase enforcement through Mininistrative Orders and Penalties.
Recommendations from the planning efforts may add additional direction or changes to the regulatory efforts.
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A. WETlANDS PLANNING INITIATIVE
Objective: EPA will provide technical support and participate in the application of
planning approaches to protect wetland resources including the preparation of
State Wetlands Conservation Plans.
Forum Recommendations:
The Forum strongly emphasizes that state and local governments with the support and
participation of federal agencies should undertake planning for wetlands to achieve at a
minimum no net loss and to aim at a net improvement in the wetlands inventory. In
addition, states should prepare State Wetlands Conservation Plans to demonstrate how
all of their programs will work together to achieve the national wetlands protection
goals recommended by the Forum. The recommendations call for guidance, technical
support, and data from the federal agencies to carry out effective planning efforts.
They suggest that federal participation in wetlands planning processes ensure that
cross-boundary considerations are addressed and valuable and/or threatened systems
are protected.
EPA Actions:
In anticipation of increased planning on the state and local level and to meet the
recommendation for federal involvement in and support of these processes, OWP and
the regional wetland offices are increasing our current wetlands resource planning
efforts. Advance planning provides the context for coordinating actions among agencies
and considering the cumulative effects of wetland loss and degradation within particular
geographic areas. This information can then be factored into decisions regarding
permits and mitigation requirements, and in identifying areas for acquisition or
restoration.
We are developing a base of knowledge about approaches that work, and transferring
lessons learned and skills required to those initiating planning processes. EPA’s
initiative has several major components:
* Increase the use of EPA Advance Identification; encourage and, where possible,
participate in other wetlands planning actions across the country.
* Provide seed money to test innovative planning approaches for wetlands. The
Administration has requested grant money for states in Fiscal Year ‘90 for state
pilots.
* Issue Advance Identification (ADID) guidance for EPA regions and an ADID
information “kit” for state and local governments.
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* Conduct case studies evaluating
wetlands planning efforts.
* Host workshops and training sessions
in planning and negotiation, and in
river corridor management.
* Use Section 404(c) in advance of
individual permit applications to
protect significant aquatic resources
which are identified througlt the
planning processes.
* Develop criteria for the design and
approval of State Wetlands
Conservation Plans. Provide models
for incorporating wetlands into
geographic specific state and local
plans which implement the goals of
State Wetlands Conservation Plans.
REGIONAL HIGHLIGHT
REGION V I I: Kansas City,
Kansas
CENTRAL FLYWAY MASTER
PLAN
The ot je ive of this project will be to
ordinate on a flyway basis federal, reg onal,
stat; and local agencies, as well as private
mterest group focused on protecting the
imegrity of wetlands within the central
migratory bird flyway of the U.S. Projected
acth’ities will inchude
• identify the wetlaods protection needs
wftWn the fl)
• Identify information, and curreru or
planned projects that could aid the
wetlands protection goals of the central
* Establish a forum to coordinate and
enhance future efforts between and
among the relevant agencies based on
recommendations of the National
Wetlands Policy Forum;
* Develop a plan to meet the identified
needs and to Integrate the capabilities of
Region VII with the activities of other
agencies and private interests.
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B. MECLIAMSMS TO INCREASE STATE/LOCAL ROLE IN WE11A JDS
PROTECTION
Objective: EPA will provide guidance, technical assistance and support to enhance the
role of state and local governments in both regulatory and nonregulatory
wetlands protection efforts.
Forum Recommendations:
The Forum report emphasizes a significant role for state and local government in both
regulatory and nonregulatory wetlands protection efforts. The recommendations stress
the need for strong state involvement in the Section 404 regulatory program (some of
the recommended actions require legislative changes). The recommendations also
include: review EPA I state water quality programs and revise to reflect wetland
considerations; have states develop action plans addressing chemical integrity of
wetlands; provide grant funds for wetlands programs.
EPA Actions:
EPA will work with state, tribal, and local governments to develop and support
wetlands programs and to review the more traditional state water quality programs to
enhance the protection of wetlands. Examples of EPA’s actions (planning related
actions with states are covered under the “Planning Initiative” objective) include:
* EPA is working with states to improve application of Section 401 water quality
certification to protect wetlands. OWP has drafted a handbook for states with
examples and guidance and will issue the final handbook in early 1989. EPA will
help states assess the impacts of certifying reissued or new general permits.
* The Administration has requested grant money for states in Fiscal Year 1990 for
program development (including studies to prepare for assumption of Section
404) and program operation for Sections 404 and 401, and other state wetlands
protection programs. EPA will develop regulations and guidance for distributing
these grants.
* OW?, along with the Office of Research and Development and Office of Water
Regulations and Standards, will assess how well current water quality criteria
protect wetlands. EPA will develop short term guidance for the states on
developing wetland .specific water quality standards. The Office of Research and
Development will issue a long range plan to develop water quality criteria
appropriate for wetlands in Spring 1989.
* EPA will host regional workshops of EPA / state / local officials, and increase
assistance and information to help state and local governments protect their
wetlands.
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* EPA is developing regulations to
treat tribes as states under the
Section 404 program.
* EPA’s Office of Marine and
Estuarine Protection will develop
an appendix to their National
Estuaiy Program Primer on
protection of ecologically sensitive
areas which will focus on wetlands.
* OWP will continue to work with
other water programs and the
Office of Solid Waste to help
ensure that wetlands are properly
protected in relevant regulatory
and nonregulatoiy programs.
REGIONAL ffiGIILIGHT
REGION X: Seattle, Washington
WF LAND WATER QUALITY
STANDARDS
Beginning in 1989, Region 10 wiu work with the
Washington Department of EcoIo ’ to Iop
water quality standards (WQS) for wetlands. Once
developed, these WOS will be implemented through
Washington ’s Clean Water Act Section 401
ocrt1ficatioi process, strengthening it substantially
for wetlands. Our goal s to develop a model
prooe that can be readily adopted by other states.
This two year project will focus on the following
areas:
Include wetlands in the definition of
waters of the state;
Recognize wetland functions and values
as beneficial uses;
Develop narrative standards (or
quantitative where possible) to prevent
significant degradation of these beneficial
uses, consistent with EPA and the state’s
antidegradatlori policies;
* Apply the new WOS in an advanced
planning mode, similar to the treatment
of surface waters (i e. 1 inventoiy wetlands
statewide, designate uses and apply
specific standards).
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C. 404 REGUlATORY WFIXESW
In addition to statutory changes, the Forum recommends actions agencies should take
right now to Improve the 404 program including:
Enforcement
Objective: Enforcement - EPA will increase enforcement through the application of
administrative and judicial penalty authorities. EPA will work with the Corps
to increase enforcement against unpermitted discharges into wetlands.
Forum Recommendations:
The Forum recommends that the Corps and EPA agree on strategies to effectively and
aggressively monitor, veri1 , and enforce permits and mitigation requirements.
The Forum calls for increased resources to be directed towards enforcement of Section
404 permitting requirements.
EPA Actions:
* OWP will complete a Memorandum of Agreement with Army to clarify
enforcement roles and implementation of the new administrative penalty
authority.
* OWP will conduct enforcement training for our regional field staffs.
* EPA will aggressively enforce against violations of Section 404 by increasing the
number of administrative enforcement actions, and civil and criminal judicial
referrals.
* EPA will encourage voluntary compliance with the Section 404 program through
its public outreach and education efforts (see Information and Education
objective).
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Guidelines
Objective: Guidelines - EPA will work with the Coips to reduce uncertainty and confusion
regarding the implementation of the Section 404 permit program and in particular, to
address key provisions in the Section 404(b) (1) Guidelines through guidance and staff
training.
Forum Recommendations:
The Forum recommends that the regulato.7 agencies issue clear guidance to their staff
and the public on how the regulatojy programs are to be implemented. This guidance
should be supplemented by a strong program of staff training .
The Forum ealls for the regulatoiy agencies to explicitly address activities not being
effectively regulated under the Section 404 program and which contribute to continuing
losses of wetland resources. The Forum also suggests taking actions needed to prevent
the willful alteration of wetland characteristics to circumvent regulatozy jurisdiction.
EPA Actions:
* EPA will work with the Corps to reduce gaps in the Section 404 regu]atoiy
program by:
• Developing a joint definition of fill material;
- Addressing the regulation of pilings and placement of other structures that
have the effect of fill;
- Clarifying the appropriate application of the Section 404 permit program
to discharges involving the removal or excavation of soil or the destruction
of vegetation.
* OWP will develop and conduct regulatory courses for EPA regional staff.
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* OWP will develop regulatory guidance on key provisions of the Section 404(b)(1)
Guidelines and other EPA Section 404 statutory responsibilities including:
Streamline Section 404(c) procedures to restrict or prohibit the use of
sites for the discharge of dredged or fill material.
Develop guidance on the application of Section 404(f) exemptions.
* OWP will, in conjunction with the Corps, develop guidance under the Section
404(b)(1) Guidelines for determining the availability of alternatives to a proposed
project.
REGIONAL HIGHLIGHT
REGION I: Boston, Massachusetts
EXPANDING THE USE OF 404(c)
Region I is making a concerted effort to strengthen their wetlands prOtection efforts by
increasing the application of EPA’s Section 404(c) authority. A powerful tool to protect
wetlands, Section 404(c) may be used to restnct or prohibit environmentally unacceptable
projects. This authority can be used for specific permit applications or in advance of specific
prop als. Region I has commiued to expond use of this authority to prohibit or restnct
projects which would cause unacceptable adverse impacts to wetlands. The region, In
conjunction with headquaners has vetoed one project, and has indicated its intent to
recommend a uvetou of several additional environmentally damaging projects. These Section
404(c) actions signal a new determination by the Region to use this potent regulatory authority
to the fullest. In addition, Region I hopes to use Section 404(c) more creative!y by ideanlying
and restricting the use of priority wetlands in advance of specific permit applications in the
following way
• The region is coi sidering an advance Section 404(c) action for a valuable wetland
complex in south central Maisathuseus
• Region I Is also exploring a combined approach in Lake a amplain, Vermont which links
Section 404(c) and EPA’s Mvance Identification authority. Under this approach, Section
404(c) would be appbed to specific wetland sites within a larger (county) advance
identification area (see Wetlands Planning Initiative objective for additional discussion of
Advance Identification).
A new eanphasis on Section 404(c) ll help carry out several of the Forum’s objectrves.
Forenxst 1 It coutd reduce the l of wetlands an accord with the national goaL Second,
Increased use of Section 404(c) In advance of indrviduaj applications will provide more certainty
In the regulatory process, arid serve as a strong tool to implement agreements made in the
planning process.
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Jurisdiction I Delineation
Objective: Iwisdicrion / Delineation - EPA will work with the Corps so establith and
implement a single delineation methodology for regulated wetlands.
Forum Recommendations:
The Forum recommends a single federal method to determine wetland regulatoi7
boundaries.
EPA Actions:
* OWP, the Corps, Fish & Wildlife Service, and Soil Conservation Service. The
agencies recently agreed to a single method for identifying wetlands and
determining wetland boundaries. The agencies will issue the joint manual for the
method in early 1989.
* These four agencies will develop a training program on the application of the
joint wetlands identi cation and delineation methodology.
* The interagency group will also work with the Society of Wetland Scientists to
develop a certification program for application of the methodology.
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D. MiTIGATION POLICY
Objective: EPA actions will reflect a policy such that unavoidable wetland impacts
should be fidly offset by wetlands restoration or creation. EPA will work with
the other key federal agencies involved in the Section 404 permit program to
develop a Join: mitigation policy which reflects the Forum’s mitigation
recommendations, focusing in particular on the goal of no net loss of
wetlands.
Forum Recommendations:
The Forum outlines eight parameters for mitigation policies not only for regulatory
programs, but also for mitigation under the National Environmental Policy Act and
Eiecutive Order 11990, Federal Energy Regnlatoiy Commission licenses, and the Fish
and Wildlife Coordination Act.
The Forum recommends that EPA verify compliance with mitigation commitments
made in Environmental Impact Statements.
The Forum supports the establishment of mitigation banks when used within
appropriate parameters (e.g., when permit review determines their use to be
appropriate).
EPA Actions:
* EPA will pursue a joint federal policy on mitigation under the Section 404(b)(1)
Guidelines which is consistent with the Forum’s national goal and incorporates
the recommended decision sequencing of avoiding the impact first, then designing
ways to minimize the impact, and finally compensating for unavoidable impacts.
This policy will recognize that there are certain circumstances where the impacts
of the project are so significant that even if alternatives are not available, the
discharge may not be permitted regardless of the compensatory mitigation
proposed. The first step will be to propose the revitalization of the federal
agency mitigation task force.
* OWP will work with the Office of Federal Activities to identify potential
approaches to pursue sound mitigation practices through EPA’s Section 309
Clean Air Act authority to review Environmental Impact Statements (EIS).
EPA’s EIS reviews will specifically consider potential wetland impacts and state
the need to avoid, minimize, and finally compensate for unavoidable impacts in
Section 309 review letters. The Office of Federal Activities is drafting regional
guidance on how to track the progress of mitigation commitments made in
Environmental Impact Statements. (Existing resources preclude a very active role
in enforcing these agreements.)
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* OWP will work with the Office of Policy, Planning, and Evaluation (OPPE) to
both explore existing mitigation banking efforts and determine acceptable
conditions for their implementation. OWP and OPPE will host a workshop on
these issues next year.
* The Office of Research and Development is developing a “Mitigation Handbook”
to provide guidelines to evaluate the likelihood that a proposed mitigation
project will succeed; to formulate permit conditions or goals for the project; and
to determine if a project met the goals. The handbook will be issued in 1989.
OWP will coordinate with ORD to provide training for EPA regional staff.
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E INFORMATION & EDUCATION
Objective: EPA will work to increase public awareness of wetland functions and values,
of the Clean Water Act regulatory programs which affect wetlands, and of
nonregulato,y approaches for protecting wetlands.
Forum Rccommendatjons
The Forum members and the public workshops both stressed a pressing need for
information on existing management programs, alternative development techniques,
ni nagement & protection options for farmers, and technical assistance to local
governments on techniques to expand their wetlands protection efforts.
EPA Actions:
EPA is working to improve public awareness of wetland functions and values. We are
also targeting special groups such as farmers, the development community, and local
zoning authorities.
* Upcoming projects of OW? and the Regional offices include: slide shows; poster
sessions; wetlands brochures; videos on wetlands mitigation and creation, general
wetlands values and trends, and key wetland areas; citizen’s guide to 404
program; publishing cases of wetlands planning efforts.
* EPA will begin preparations to sponsor a public awareness effort, “Year of the
Wetlands” for 1991 in coordination with other federal, state, and local agencies
and private organizations.
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F. CUMIJL4TWE IMPACTS
,.. *****.****************s**
Objective: EPA will continue to
******s***********$****************************
develop and test methods for assessing the cwnulath’e
effects of wetland loss
and degradation. EPA will work to incorporate these
as sessment appmaches
into comprehe ive planning and permit decL ions for
wetlands.
Forum
The Forum report calls for research on methods to assess the cumulative affects of
rnany individual actions on wetland integrity within a system. It also calls for such
approaches to be incorporated into wetlands planning pro sses.
EPA Actions:
* OWP has drafted Section 404
guidance for enhancing the
protection of bottomland
hardwoods which have been
severely depleted through
cumulative losses. OWP is
addressing comments from the
Corps and plans to issue final
guidance in 1989.
* OWP has completed a pilot test
of the cumulative impact
assessment procedure for
bottomland hardwood wetlands
in the Tensas River Basin in
Louisiana. OWP, ORD and
Regions W and VI have
initiated an Advance
Identification effort in the Pearl
River Basin of Mississippi and
Louisiana which will apply this
assessment method.
REGIONAL HIGHLIGHT
REGION VIII: Denvei , Colorado
PRAIRIE WETLAND INITIATIVE
EPA and the U.S. Fish and Wildlife Service (FWS)
regional staffs have initiated a joint plan to improve
protection of prairie wetlands in the Prairie Pothole
Region in the north central United States. The effort
ftiouses on practical uy to more effectively protect
this diminishing resource within the existing
institutional and legislative framework. The goal of
this initiative Is to implement short-term (1.3 years)
and long-term (3.5 years) activities which will show
measurable wetland Protection results.
EPA and FWS jointly developed a strategic plan which
includes the following action items:
Make more effective use and enforcement of
Qean Water Act regulations;
• Expand public outreach program;
Provide technical and administrauve support for
North Dakota’s ‘no net wetlands aces loss’ law
Initiete an Advance Identification project to protect
threatened prairie wetlands;
• Develop a program which identifies and supports
the use of ‘non-persIstent ’ pesticides;
• D gitze National Wetland Inventory data to
ampim’e the informatbe available on wetlands
• Implement a Joint con-point source and wetlands
demonstration project.
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* ORD is developing a general assessment method to anticipate the cumulative
ecological effects of wetland loss on landscape functions and to consider these
impacts in the permit process. A draft method is currently being tested and the
final methodology is scheduled to be completed by 1991.
* ORD is investigating the cumulative effects of wetland loss on water quality.
- One pilot study of 15 drainage areas is complete, and a second study is planned.
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G. WETlANDS RESTORATION
Objective: EPA will identify oppomuzities and initiate projects to restore and create
wetlands to increase the quantity and quality of wetlands and to meet other
national environmental goals including those of the Clean Water Act. EPA
will also identify areas appropriate for wetland restoration based upon
advance planning processes and conrideration of cumulative impacts such as
point or nonpoini source problems within waterthed areas.
Forum Recommendations:
The Forum suggests several recommendations with an emphasis on restoring former
wetland areas to achieve the goal of increasing the quantity and quality of the nation’s
wetlands base, including a public I private wetlands restoration initiative.
The Forum suggests including wetlands restoration and creation in government
programs (including EPA’s).
EPA Actions:
* OWP is conducting a pilot project to identilS’ Superfund sites which are located
in, or impact, wetlands. OWP will work with the Superfund program to develop
their “Superfund Environmental Evaluation Manual” as technical guidance to
evaluate ecological damage at Superfund sites.
* Through its participation in Advance Identification and other advance planning
processes, EPA will encourage and assist in identifying potential sites for
restoring wetlands. EPA will consider the cumulative impacts of wetland losses
within that watershed when making these recommendations.
* EPA will support demonstration projects creating wetlands for wastewater
treatment which could help offset past losses due to the municipal wastewater
construction program. EPA will also evaluate the creation and restoration of
wetlands as a strategy for managing stormwater runoff in a manner which
ptovides other wetland functions as well. ORD has requested funding to
evaluate the effectiveness of wetlands constructed for wastewater treatment in
1990.
* EPA will continue to provide technical support to the Des Plaines River
Wetlands Restoration project to restore wetlands along a stretch of the river.
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The sites will be used as an outdoor laboratory to test the potential and
limitations of wetlands to moderate nonpoint and point source pollution.
* ORD will conduct its third pilot study comparing created or restored wetlands
with naturally occurring wetlands. Techniques for evaluating specific wetland
components will be incorporated into a wetlands characterization manual.
REGIONAL HIGHLIGHT
REGION IV: Atlanta, Georgia
WETLANDS RESTORA11ON INITIATIVES
Region IV Is involved in several wetland restoration demonstration prr eczs which
will help to implement the Forum’s restoration recommendations. These projects
Involve wetlands creation for wastewater treatment and public eduralion, wetland
restoration in response to permit conditions, and EPA funded research efforts
exploring the feasibility of restoring bottomland hardwood wetlands on sur ce
mined land.
• Region IV (Construction Grants Program) airrently has five “constructed
wetland” projects underway rangrng from 13 to 15 acres In re for the
purpote of sewage treatment. Three of these systems arc operational and
two are not yet under construction. Region TV’s wetlands program has
initiated a wetlands o eation project at the Coattanooga Nature Center in
Tennessee.
• Region IV will also continue to monitor the restoration of Central and
Northern fonda wetland systems impacted by phczphale mining. This
effort pan of an agreement developed between the Corps of Engineers,
fonda Department of ExMronmental Regulation, EPA, and Occidental
Chemical Agricultural Products, Inc. The ‘Occidental Agreement” is an
attempt to establish “up-front” restoration requirements from a regulatoty
perspective and establish criteria to judge success for a self-sustaining
system. Given the protracted nature of wetland restoration, monitoring
efforts will take place for several more years.
Finally, Region IV recently entered into an interagency agreement with
the Tennessee Valley Authcniry to Investigate the feasibility of bottoinland
hardwood restoration on lands which have been surface mined for coal.
This project will include a mining reclamation workshop, a propotal for
research in an area identified by the workshop, and the generation of a
Tcchniral Guidance Document on mining reclamation. This project will
begin in Januaiy 1989.
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