[Federal Register: September 26, 2008 (Volume 73, Number 188)]
[Notices]
[Page 55816-55822]
From the Federal Register Online via GPO Access [wais.access.gpo.gov]
[DOCID:fr26se08-34]
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DEPARTMENT OF COMMERCE
National Oceanic and Atmospheric Administration
[Docket No. 0808271163; RIN 0648-ZA70]
NOAA Community-based Restoration Program Guidelines
AGENCY: National Marine Fisheries Service (NMFS), National Oceanic and
Atmospheric Administration (NOAA), Commerce.
ACTION: Notice.
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SUMMARY: On August 24, 2005 NOAA published a notice in the Federal
Register that announced revisions to guidelines for the Community-based
Restoration Program (Program). The notice requested public comment on
proposed updates to the guidelines that describe how the Program is
implemented, and notified the public about a constituent feedback
meeting that was scheduled for September 13, 2005 in Washington DC.
This notice makes minor changes to the previously published guidelines
and responds generally to the comments received, summarizes the
constituent feedback meeting in Washington, D.C., and highlights
specific authorization for the Program established in the Magnuson-
Stevens Fishery Conservation and Management Reauthorization Act of
2006. NOAA expects to periodically update these guidelines every 3 to 5
years to reflect the evolution of the Program. This is not a
solicitation of project proposals.
FOR FURTHER INFORMATION CONTACT: Robin Bruckner, (301) 713-0174, or by
e-mail at Robin.Bruckner@noaa.gov.
SUPPLEMENTARY INFORMATION: The NOAA Community-based Restoration Program
(Program) was established in 1996. Proposed Guidelines for the Program
were first published in the Federal Register on October 1, 1999 (64 FR
53339). In that document, comments were sought on modifications to the
Program that would allow greater flexibility to support community-based
habitat restoration projects. Final Program Guidelines, including
responses to comments, were published on March 30, 2000 (65 FR 16890).
In the time since the original guidelines were issued, the Program has:
experienced an increase in base funding; emphasized certain techniques
through targeted initiatives, such as fish passage and marine debris
prevention and removal, to expand benefits to aquatic resources;
undertaken projects in new geographic locations; increased its focus on
ecosystem-based approaches to management; and generally has implemented
increased numbers of locally initiated, grass-roots habitat restoration
projects through partnerships at the local, regional and national
levels. The Program is now specifically authorized through the
Magnuson-Stevens Fishery Conservation and Management Reauthorization
Act of 2006 on January 12, 2007. The NOAA Restoration Center
(Restoration Center) within NMFS is issuing revised Program guidelines,
which include measures that are in place or planned to enable the
Program to demonstrate increased accountability for the expenditure of
public dollars.
Responses to Comments
The Program received comments from three entities during the
comment period (August 24, 2005 through October 11, 2005). A private
individual, Trout Unlimited, and the Massachusetts Division of Marine
Fisheries submitted comments. Comments are summarized below, by
commenter, with responses.
Comment 1: The first commenter noted the Program had reached $13
million in appropriations and inquired about the Program's
accomplishments in 2004. Specifically, the commenter requested names
and locations of projects, the amount of money spent, and what was
accomplished (e.g. acres restored).
Response: Project-specific information is made available to the
public via the ``Funded Projects'' section of the Restoration Center
website at: http://seahorse2.nmfs.noaa.gov/hcrcdb_app/class/. Projects
can be viewed by location, habitat type, or partnership. Project names,
locations, funding recipients, award amounts and year awarded, project
partners and contacts, and a summary of each project's goals,
objectives and results can be found there.
Comment 2: Trout Unlimited offered full support for the proposed
Program changes, and emphasized the most beneficial changes. These
included: (1) the requirement for project partners to provide detailed
project information for the Restoration Center database; (2) the
requirement for science-based monitoring where appropriate as supported
by the Estuaries and Clean Waters Act of 2000; (3) consideration of
habitat restoration in the Great Lakes region; and (4) the increase of
upper and lower funding ranges for financial assistance for projects.
Response: NOAA agrees with the commenter that the proposed changes:
(1) are essential to evaluate progress of work funded by the Program;
(2) represent a long-term commitment of the Program to measure project
outcomes such as improvements in habitat productivity and fish
populations; (3) represent a reasonable direction for the Program
expansion (into the Great Lakes, dependant on Congressional
appropriations) given NOAA's traditional responsibilities for habitat
restoration in large aquatic systems; and (4) increases efficiency and
cost-effectiveness of the Program. Regarding the fourth point, since
small projects often require the same level of NOAA staff support to
ensure environmental compliance as do larger projects, they have become
less cost-effective. NOAA agrees with the commenter that national and
regional partnerships can provide smaller awards more cost-effectively
as part of larger, more comprehensive restoration activities.
Comment 3: The Massachusetts Division of Marine Fisheries (MADMF)
was generally very supportive of the goals and efforts of programs
within NOAA Fisheries Office of Habitat Conservation, and offered
specific comments in the context of improving federal-state
communication and project execution. The commenter: (1) requested
clarification of state-federal interactions to ensure the objectives of
the Program are consistent with existing state authority and objectives
for anadromous and marine fisheries resources; (2) requested a process
that would allow the state to provide technical comments and approval
on project proposals and designs, and suggested that NOAA require
support letters from the state agency with responsibility over the
target resources; (3) suggested that formal partnerships between NOAA
and state agencies be established to provide a streamlined and
dedicated annual funding source for ongoing state programs that
routinely address priority anadromous fish restoration projects; and
(4) suggested that improvements were needed in the coordination between
the Program and
[[Page 55817]]
state agencies that hold the statutory authority to manage the [target]
resources, so as to avoid a duplication of effort, with a
recommendation to increase funding to assist state efforts rather than
cultivating federal expertise.
Response: (1) NOAA's Community-based Restoration Program has
provided financial and technical assistance for on-the-ground habitat
restoration projects in 26 states, Canada, the Caribbean and the
Pacific Islands to benefit marine and coastal resources and anadromous
fish. The Restoration Center has technical staff in 20 locations around
the Unites States that ensure NOAA-funded habitat restoration projects
are consistent with existing state authority and objectives for coastal
and marine fisheries resources. Program staff makes a point to ensure
early and continuous coordination with other federal and state
agencies. (2) Since inception of the Program, Notices of Funding
Availability (NOFA) and Federal Funding Opportunities (FFO) have
stressed the importance of letters of support. A complete application
for a NOAA habitat restoration grant should include letters of support.
Applicants are evaluated based in part on the commitment from the
appropriate resource agency personnel that indicates that an agency has
reviewed and supports the final proposal. (3) NOAA requires that
discretionary funding be provided through fair and open competition.
Competition ensures that projects are of the highest quality and offer
significant ecological benefits. The Program announces competitive
financial assistance annually through NOAA's Omnibus Federal Register
Notice and www.grants.gov process, as well as through numerous national
and regional habitat restoration partnerships. State agencies are
eligible to compete for this funding and have equal opportunity to
apply for support for individual projects as well as for larger
partnership awards that are offered every 3 years. (4) In response to
comments, the Program expanded its effort to involve MADMF in the
review and oversight of the Program's anadromous fish restoration
projects through the NMFS Northeast Regional Office in Gloucester,
Massachusetts. The Program also sent a letter to the Director of the
MADMF in April 2006 and proposed a meeting to discuss communication and
opportunities to enhance coordination on habitat restoration policies,
priorities and projects. NOAA recognizes that local project proponents
do not always have the full suite of technical and project management
skills to design, permit and implement a project. A cornerstone of the
Program is its ability to provide technical assistance around the
country for a wide range of habitat restoration activities, including
assistance for projects that provide fish passage and habitat
improvements for anadromous fish.
Constituent Feedback
On September 13, 2005, the Restoration Center held its first
national stakeholder meeting on the Program in Washington, D.C. The
meeting provided an open forum for public feedback on the Program and
it was attended by 25 partner organizations from around the country.
NOAA facilitators guided discussions around the following topic areas:
revised program guidelines, technical assistance, restoration
bottlenecks, and future programmatic priorities. The Program responded
to this constituent feedback by publishing ``NOAA's Community-based
Restoration Program Stakeholder Meeting, Summary Report September 13,
2005, Washington, D.C.'' This report is available upon request (see FOR
FURTHER INFORMATION CONTACT), and is organized into six thematic
sections: Research and Monitoring, Regional Planning and
Prioritization, Technical Assistance Needs, Funding and Program Growth,
Interagency Coordinator/Permitting, and Outreach and Education.
NOAA Community-based Restoration Program Guidelines
Background
This document replaces previous guidelines and describes the
Program's implementation for FY 2009 and beyond. The comments and
stakeholder meeting feedback have been considered and minor
modifications to the Program guidelines are provided herein. The
Program was recognized in the Magnuson-Stevens Fishery Conservation and
Management Reauthorization Act of 2006 as an important means to
implement and support the restoration of fishery and coastal habitats.
Coastal areas contain the Nation's most diverse, valuable and at-
risk habitats, which support 90% of ocean-dependent commercial and
sport fish species, generate billions of recreation and tourism dollars
annually, and protect coastal communities from storms, floods and other
hazards. U.S. coastal wetlands reduce the damaging effects of
hurricanes and other storms on coastal communities, providing more than
$23 billion in annual storm protection services to cities and regions
most vulnerable to hurricane and tropical storm surges. Recreational
fishing is estimated to contribute between $10 billion and $26 billion
each year.
Degradation and loss of coastal and marine habitats threaten the
long-term sustainability of the nation's fishery resources and the
safety and economies of coastal communities. Protecting existing,
undamaged habitat is a priority and should be combined with coastal
habitat restoration to enhance the functionality of degraded habitat.
Restored coastal habitat will help rebuild fisheries stocks and recover
threatened and endangered species. Restoring marine and coastal
habitats will help protect and revitalize coastal communities and
ensure that valuable natural resources will be available to future
generations of Americans.
Program Overview
NOAA initiated a Community-based Restoration Program (Program) in
1996 under general authorities within the Fish and Wildlife
Coordination Act. The Program received specific authorization in the
Magnuson-Stevens Fishery Conservation and Management Reauthorization
Act of 2006 on January 12, 2007. The Program implements and supports
the restoration of fishery and coastal habitats by providing Federal
financial and technical assistance to encourage locally led coastal and
marine habitat restoration, and to promote stewardship and conservation
values for NOAA trust resources. The Program is a systematic national
effort to foster partnerships at the national, regional and local level
to implement sound habitat restoration. Partnerships are forged between
government, not-for-profit organizations, community groups,
recreational and commercial fishing organizations, students and
educational institutions, businesses, youth conservation corps and
private landowners. Under the Program, partners may contribute funding,
land, technical assistance, workforce support or other in-kind
services; promote local participation in habitat restoration
activities; undertake research and monitoring to evaluate and improve
project success; and facilitate stewardship for restored resources at
the local level. To date, the Program has funded more than 1400
community-based habitat restoration projects in 27 states, Washington
D.C., Canada, and the Caribbean. These projects have engaged 132,000
volunteers that have contributed 840,000 hours toward the restoration
of over 33,000 acres of habitat and the opening of 1400 miles of rivers
and streams for aquatic organisms.
[[Page 55818]]
Electronic Access
Information on the Program, including partnerships and projects
that have been funded to date, can be found on the World Wide Web at:
http://www.nmfs.noaa.gov/habitat/restoration. Project-specific
information is linked off the Restoration Center database (RCDB)
launched in 2001 to track habitat acres created, established,
rehabilitated, enhanced or protected; stream miles made accessible to
diadromous fish; volunteer or community participation hours;
restoration techniques used; habitat types and species benefited; and
other parameters for Restoration Center supported projects. The
database has increased NOAA staff efficiency and allows the Restoration
Center to respond quickly and accurately to Congressional,
Administrative and constituent inquiries, such as those on Program
performance measures, through reporting features that can calculate the
acreage or stream miles restored by all projects completed in any
particular year, for example. Subsequent enhancements to the database
include additional fields related to environmental compliance, display
and collection of project locations through a Geographic Information
System (GIS) based mapping application, and revised parameters to
facilitate data-sharing with the National Estuaries Restoration
Inventory.
Overview of Changes to the Program
Since the Program began, Congressional appropriations have
increased from $250,000 in 1999 to a high of $13.7 million in 2005. To
effectively manage this growth, to provide better service to
constituents, and to accurately report on the Program's
accomplishments, the Restoration Center has changed some of its
practices and implemented a number of tools to increase efficiency and
accountability.
To evaluate the progress of the work proposed under Program awards,
to determine whether projects were successfully completed, and to
facilitate population of the database with project-specific
information, the Restoration Center sought and received approval in
2004 from the Office of Management and Budget (OMB) to collect detailed
project information from grantees. This information, such as
restoration techniques used, species benefitted, geographic coordinates
of project sites, and monitoring and outreach information, is now
typically required as part of semi-annual progress reporting. The
Restoration Center received renewed approval from OMB, under the
Paperwork Reduction Act, to continue collecting this information
through May 2009.
The Restoration Center has also begun typically requiring science-
based monitoring of restoration projects, where appropriate, in an
effort to improve on-the-ground restoration efforts and increase
Program effectiveness. Applicants requesting funding to implement on-
the-ground habitat restoration projects that will result in structural
or functional habitat changes should have clearly identified goals
(broad in scope) and specific, measurable objectives. Evaluating these
objectives to ensure a basic assessment of project success generally
requires monitoring, during the project period, of at least one
structural and one functional parameter, as supported by Title I of the
Estuaries and Clean Waters Act of 2000 (Pub. L. 106-457). Assistance in
refining the objectives and/or selecting appropriate parameters is
available from Program staff, as well as from a new online Restoration
Monitoring Planner available at http://www.habitat.noaa.gov/
restoration/rmp. The NOAA Restoration Monitoring Planner guides
restoration practitioners through the basic steps of developing a
science-based monitoring plan, including hypothesis testing and
assessment of a habitat's structure and function. A fact sheet with
examples of structural and functional monitoring parameters is also
available.
In conjunction with science-based monitoring, the Program is
beginning to assess and monitor the socio-economic benefits, aka human
dimensions, of habitat restoration. A 2006 pilot study indicated that
most individuals who engage in the Program's projects already possess a
strong stewardship ethic. In future studies, the Program expects to
learn more about the impact of such projects on individuals who are
less environmentally aware. A separate human dimensions research area
is establishing an economic baseline against which the economic
benefits of habitat restoration over the long term can be measured.
Using the results of these studies and others, the Program will
finalize monitoring guidelines which will enable effective
documentation of the socio-economic benefits of habitat restoration.
Both the Restoration Center Database and implementation of minimum
monitoring requirements support NOAA's strategic plan, specifically
NOAA's Ecosystems mission support goal to ``Protect, Restore, and
Manage Use of Coastal and Ocean Resources through Ecosystem-Based
Management'', and allow better project tracking and evaluation of
performance measures. Revision of habitat-related and other relevant
performance measures in coordination with all major NOAA programs
involved with habitat restoration is ongoing through NOAA's Habitat
Program.
Program Goals and Objectives
According to the Magnuson-Stevens Fishery Conservation and
Management Reauthorization Act of 2006, the goals and objectives that
have defined the Program to date have not changed. These include:
Provide funding and technical expertise to fishery and
coastal communities to assist them in restoring fishery and coastal
habitat;
Advance the science and monitoring of coastal habitat
restoration;
Transfer restoration technologies to the private sector,
the public, and other governmental agencies;
Develop public-private partnerships to accomplish sound
coastal restoration projects;
Promote significant community support and volunteer
Participation in fishery and coastal habitat restoration;
Promote stewardship of fishery and coastal habitats; and
Leverage resources through national, regional, and local
public-private partnerships.
The Restoration Center uses cooperative agreements as a primary
funding mechanism to accomplish habitat restoration. The Program will
continue to award cooperative agreements based on a competitive,
technical review process, whenever possible, to maximize opportunities
for public access to Program resources. Partnerships with citizen
groups, public and not-for-profit organizations, industry, corporations
and businesses, youth conservation corps, students, landowners, and
local government, and state and Federal agencies are supported through
the provision of Federal financial and technical assistance.
Cooperative agreements are awarded at two distinct levels individual
(or direct) project funding and Restoration Partnerships.
Direct project funding is typically announced annually in NOAA's
Omnibus Federal Register Notice. Direct project funding focuses on
partnerships at the local level, providing awards to support individual
habitat restoration projects, barrier removal projects, or marine
debris prevention and removal projects, or a bundle of well developed,
typically related projects, for up to 24 months. Specific information
on these federal funding opportunities, including application
[[Page 55819]]
requirements, eligibility, program priorities and other application
submission requirements are posted on www.grants.gov as they are made
available.
National and Regional Habitat Restoration Partnership funding is
announced every 3 years through the NOAA Omnibus Federal Register
Notice. Partnership awards are up to 36 months in duration, are usually
larger than project awards, and specific projects are often not
identified at the time of application. Partnership applications outline
the concept and focus of habitat restoration activities and detail the
mechanism under which individual projects will be identified and
subsequently funded as subawards through the partner organization.
Partner organizations assume the administrative responsibilities for
subawards, such as letting contracts and managing progress and
financial reports. This allows NOAA staff to focus on assisting with
project implementation. The next solicitation for partnership
applications is expected to be announced in summer 2009 for FY2010
funding.
For the first time, the partnership review (for FY 2007-2009
funding consideration) was conducted as a two tier review process with
both technical mail reviews followed by a panel review, which proved
successful. The Restoration Center is likely to adopt this method of
review for future partnership rounds, and may opt to use it for future
project decision-making.
Partners help identify and secure additional funding, land,
technical assistance, workforce support or other in-kind services to
enable citizens to improve locally important habitats that sustain
living marine and coastal resources. Projects are most often
implemented in coastal and nearshore marine and estuarine environments
and in riverine environments that support diadromous fish; expansion of
the Program to the Great Lakes is being considered, and will be
dependent on the NOAA Habitat Program's goals and Congressional
appropriations made for this purpose. It is anticipated that any
projects supported in the Great Lakes region will fall under these
Program guidelines.
The Program places emphasis on habitat restoration projects with
strong community support and recognizes the significant role that
communities can play in habitat restoration and protection. Projects
that incorporate citizens' ``hands-on'' involvement in project
implementation, monitoring, or outreach and education are preferred.
The role of NOAA in the Program is to strengthen the development and
implementation of sound restoration projects. NOAA staff will continue
to provide guidance and technical expertise on permitting,
environmental compliance, engineering and design, and similar aspects
required for project implementation.
NOAA seeks applications that demonstrate collaboration among
entities such as nonprofit organizations, citizen groups, industry,
youth conservation corps, students, landowners, academics, local
government, and state, and federal agencies to implement habitat
restoration activities. Project outcomes should include a net gain in
habitat acres restored or stream miles re-established for diadromous
fish passage. Successful applicants will typically be expected to
document volunteer involvement and a maximization of project
partnerships through leverage. Eligibility requirements will be
detailed in annual solicitations published in the Federal Register.
The Restoration Center is also exploring the feasibility of working
more collaboratively with other federal agencies by developing joint
interagency solicitation for applications. This would enable project
proponents to submit a single application for consideration by multiple
federal agencies, and would facilitate discussion amongst agencies on
cooperative funding opportunities. It would also allow agencies to
better leverage their respective financial and technical resources and
help accomplish restoration in a more strategic fashion. Consolidation
would be for the RFAs only; funding for recommended projects would need
to be provided separately by the interested agency, as federal agencies
have limited authority in most cases to transfer funds appropriated by
Congress to another federal agency.
Eligible Restoration Activities
Restoration may include, but is not limited to, improvement of
coastal wetland tidal exchange or reestablishment of historic
hydrology; dam or berm removal; improvement or reestablishment of fish
passage; reef/substrate creation; establishment of riparian buffer
zones and improvement of freshwater habitat features in watersheds that
support diadromous fish; exclusionary fencing and planting; invasive
species removal; planting of native coastal wetland and submerged
aquatic vegetation; and enhancement of feeding, spawning and growth
habitat essential to marine or diadromous fish, including degraded
areas that historically were important habitat for living marine and
coastal resources, and through the restoration of which would support
these resources again.
Program Priorities
In general, NOAA seeks restoration project proposals that clearly
demonstrate anticipated benefits to specific NOAA trust resource
habitats; describe how these benefits will be achieved through the
proposed restoration activities, and identify the range of species
expected to benefit. NOAA trust resource habitats include but are not
limited to, estuaries, salt marshes, seagrass beds, coral reefs,
shellfish reefs, mangrove forests, and riparian habitat near rivers,
streams and creeks used by diadromous fish.
NOAA seeks to emphasize selection of restoration projects that
address habitats whose regional condition is compromised due to loss,
fragmentation, presence of invasive species, or loss of functionality.
In addition, habitat restoration project proposals are evaluated based
on their social and economic importance (e.g. benefits to essential
fish habitat that supports commercial or recreational fishery
resources, or improvements in aesthetic and stewardship value of NOAA
trust resource habitats) within their region. Within a given habitat,
priority is also typically given to project proposals that incorporate
proven effective restoration techniques, address causes of habitat
degradation/loss, and maximize cost-effectiveness.
Since the inception of the Program, West Coast projects have
focused primarily on restoration of salmonid freshwater habitats. To
broaden the scope of funded projects in the Pacific Northwest and
California, the Program will seek projects that benefit multiple
species, including non-salmonid resources, and projects that emphasize
restoration of marine and estuarine habitats. The Program expects to
continue to support freshwater salmonid habitat restoration efforts. In
addition, any salmonid project that would occur where NOAA species
recovery planning efforts are underway should be consistent with those
planning efforts.
While the primary focus of the Program is to provide funding and
technical expertise to support on-the-ground implementation of fishery
habitat restoration projects that involve an outreach and/or volunteer
component tied to the restoration activities, the Program recognizes
that accomplishing restoration is a multi-faceted effort involving
project design, engineering services, permitting, short-term baseline
studies, construction,
[[Page 55820]]
oversight, monitoring, and education and outreach. In cases where on-
the-ground funding for a project has been secured or is deemed likely,
and/or community support for a restoration project is high, but pre-
implementation funding to conduct feasibility studies or engineering
and design is limiting a project's forward progress, the Program will
consider funding such pre-implementation activities. Proposals
emphasizing a singular component, such as only education or program
coordination will be discouraged, as will applications that propose to
expand an organization's day-to-day activities, or that primarily seek
support for administration, salaries, overhead, and travel. Because
requests for habitat restoration funds historically exceed funds
available, funding land purchase agreements, conservation easements,
and large equipment purchases such as vehicles, boats and similar items
will receive low priority.
Although NOAA recognizes that water quality issues may impact
habitat restoration efforts, this Program is intended to fund projects
that target physical and/or biological habitat restoration rather than
those that result in direct water chemistry improvements (i.e.
wastewater treatment plant upgrades or combined sewer outfall
corrections). Similarly, the following restoration projects will not be
eligible for funding: (1) Activities that constitute legally required
mitigation for the adverse effects of an activity regulated or
otherwise governed by local, state or Federal law; (2) activities that
constitute restoration for natural resource damages under Federal,
state or local law; and (3) activities that are required by a separate
consent decree, court order, statute or regulation. Funds from this
Program may be sought to enhance restoration activities beyond the
scope legally required by these activities.
Environmental Compliance
It is the applicant's responsibility to obtain all necessary
Federal, state and local government permits and approvals for the
proposed work. Applicants are expected to design their projects so that
they minimize the potential for adverse impacts to the environment.
NOAA must analyze the potential environmental impacts, as required by
the National Environmental Policy Act (NEPA), for applications that
seek NOAA funding. Proposals should provide enough detail for NOAA to
make a NEPA determination. Successful applications cannot be forwarded
to the NOAA Grants Management Division with recommendations for funding
until NOAA completes necessary NEPA documentation.
Consequently, as part of an applicant's package, and under the
description of proposed activities, applicants will be required to
provide detailed information on the activities to be conducted, such as
site locations, species and habitat(s) to be affected, possible
construction activities, and any environmental concerns that may exist
(e.g., the use of and/or disposal of hazardous or toxic substances,
introduction of non-indigenous species, impacts to endangered and
threatened species, impacts to coral reef systems, etc.). For
partnerships, where project-specific details may not be available at
the time an award is made, partners must meet the same environmental
compliance requirements on subsequent sub-awards.
In addition to providing specific information that will serve as
the basis for any required impact analyses, applicants may also be
required to assist NOAA in drafting of an environmental assessment if
NOAA determines an assessment is necessary and that one does not
already exist for the activities proposed in the application.
Applicants may also be required to cooperate with NOAA in identifying
and implementing feasible measures to reduce or avoid any identified
adverse environmental impacts of their proposal. The selecting official
may decide, at the time of proposal review, to recommend funding a
project in phases to enable an applicant to provide information needed
for an environmental assessment, feasibility analysis or similar
activity if a NEPA determination cannot be made for all activities in a
particular application. The selecting official may also impose special
award conditions that limit the use of funds for activities that have
outstanding environmental compliance requirements. Special award
conditions may also be imposed to ensure grantees consider and plan for
the safety of volunteers, and provide appropriate credit for NOAA and
other contributors, for example.
Funding Sources and Dispersal Mechanisms
The Restoration Center envisions funding projects through
cooperative agreements and grants, contracts, joint project agreements,
and intra- and interagency transfers, as appropriate.
A cooperative agreement is a legal instrument reflecting a
relationship between NOAA and a recipient whenever (1) the principal
purpose of the relationship is to provide financial assistance to the
recipient and (2) substantial involvement is anticipated between NOAA
and the recipient during performance of the contemplated activity.
A grant is similar to a cooperative agreement, except that in the
case of grants, substantial involvement between NOAA and the recipient
is not anticipated during the performance of the contemplated activity.
Financial assistance is the transfer of money, property, services or
anything of value to a recipient in order to accomplish a public
purpose of support or stimulation that is authorized by Federal
statute.
A contract is a procurement instrument used when the primary
purpose is to acquire goods or services for government use. Contracts
may be used by the Program when NOAA directly implements priority
restoration projects.
The Secretary of Commerce has authority to enter into joint project
agreements with not-for-profit, research, or public organizations on
matters of mutual interest, the cost of which is equitably apportioned.
The principal purpose of a joint project agreement under this Program
is to engage in a collaborative and equitably apportioned effort with a
qualified organization on matters of mutual interest.
For purposes of this Program, interagency agreements are written
documents that contain specific provisions of governing authorities,
agency responsibilities, and funding. Such agreements are entered into
between NOAA and a reimbursing Federal agency or between another
Federal agency and NOAA when NOAA is the funding organization. Such
agreements will also require the inclusion of a local sponsor for the
restoration project.
The instrument chosen will be based on such factors as degree of
direct NOAA involvement with the project beyond the provision of
financial assistance, the proportion of funds invested in the project
by NOAA and the other organizations, and the efficiency of the
different mechanisms to achieve the Program's goals and objectives. The
Restoration Center will determine which method is the most appropriate
based on the specific circumstances of each project.
NOAA reserves the right to fund individual projects directly, or
through partnership arrangements. The Program will continue to create
partnership arrangements at the national and regional level with
organizations that have similar goals for improving fisheries habitat.
Partnerships are a key element that allows the Restoration Center to
significantly leverage the
[[Page 55821]]
funding available for on-the-ground restoration. Partnerships also
encourage sharing and distribution of technical expertise; they often
improve coordination between diverse organizations with common goals,
and they allow NOAA to reach larger and more diverse communities that
have vested interests in fishery habitat restoration.
The Restoration Center will function in a clearinghouse capacity to
help develop and link high quality habitat restoration proposals with
other potential funding sources whose evaluation criteria contain
similar specifications for habitat enhancement. This will provide
greater exposure for project ideas and increase the chances for project
proponents to secure funding.
Each year, the Restoration Center Director will determine the
proportion of Program funds that will be allocated to National and
Regional Habitat Restoration Partnerships and the proportion available
for direct project funding. The proportion will be established annually
and may depend upon the amount of funds available from partnership
organizations to leverage NOAA dollars and the ability of partners to
help NOAA fund a broad array of projects over a wide geographic
distribution. A synopsis of the partnership and/or project funding
opportunity will be published in NOAA's Omnibus Federal Register
Notice, typically in the summer prior to the fiscal year funding is
expected to be available. Potential applicants will be directed to
additional information contained in any Federal Funding Opportunity
(FFO) announced on www.grants.gov. FFO's will contain a Funding
Opportunity Description, Award Information, Eligibility Information,
Application and Submission Information, Application Review and
Selection Information, Award Administration Information, Administrative
and National Environmental Policy Act Requirements, Agency Contacts,
and other information for potential applicants.
The public should note that since publication of the initial
Program Guidelines in 2000, NOAA has adopted five standard evaluation
criteria for all its competitive grant programs, as follows: (1)
Importance and Applicability of Proposal -This criterion ascertains
whether there is intrinsic value in the proposed work and/or relevance
to NOAA, federal, regional, state or local activities; (2) Technical/
Scientific Merit B This criterion assesses whether the approach is
technically sound and/or innovative, if the methods are appropriate,
and whether there are clear project goals and objectives; (3) Overall
Qualifications of Applicants B This criterion ascertains whether the
applicant possesses the necessary education, experience, training,
facilities, and administrative resources to accomplish the project; (4)
Project Costs - This criterion evaluates the budget to determine if it
is realistic and commensurate with the project needs and time-frame;
and (5) Outreach, Education, and Community Involvement - NOAA assesses
whether the project provides a focused and effective education and
outreach strategy regarding NOAA's mission. Information on how these
criteria are specifically applied in the context of Community-based
Restoration Program application evaluation are described each year in
the FFO, available on www.grants.gov.
Funding Ranges
In 2008, the Restoration Center accepted habitat proposals
requesting between $30,000 and $250,000; marine debris prevention and
removal proposals between $15,000 and $250,000, and Open Rivers
Initiative proposals for barrier removals between $30,000 and
$1,000,000. This represents an increase in upper and lower funding
ranges for projects from earlier Program guidelines. Typical
restoration project awards range from $50,000 to $300,000. Funding at
levels below $15,000 is typically no longer cost-effective due to
increasing operational costs necessary to ensure environmental
compliance and administer awards; funding fewer projects at higher
dollar amounts has also led to increases in Program efficiency.
Awards for establishing multi-year, National and Regional Habitat
Restoration Partnerships, under which individual project subawards will
be jointly reviewed and prioritized for funding, are anticipated to
range between $100,000 and $4.0 million, with that range of funding
anticipated to be provided to successful partnerships annually during a
partnership's duration. Subsequent allocation of funding during the
multi-year award period will be dependent on the satisfactory
performance of the partner organization.
Project and Partnership solicitations (FFO's) will contain
information on funding ranges, the weighting of NOAA's standard
evaluation criteria, and additional factors that may be used by the
selecting official to recommend a slate of projects to the Grants
Management Division to receive awards. The number of awards and funding
ranges to be made in FY 2007 and beyond will depend on the amount of
funds appropriated to the Program annually by Congress.
Examples of Previously Funded Projects
The following examples are community-based restoration projects
that have been funded with assistance from the Restoration Center.
These examples are only illustrative and are not intended to limit the
scope of future proposals in any way.
Fish Ladder Construction
An impediment to fish passage was corrected through the design and
construction of a step-pool fish ladder, which now allows native
steelhead trout to reach their historic spawning grounds.
Invasive Plant Removal
A coalition of volunteer groups called ``Pepper Busters'' worked to
remove exotic Brazilian pepper plants and replant native shoreline
vegetation.
Salt Marsh Restoration
An undersized culvert was replaced to increase the mean high water
level in the restricted portion of a marsh and restore tidal flushing
to 20 acres of salt marsh.
Oyster Reef Restoration
Oyster reef habitat was increased by reconstructing historic reefs
and seeding them with hatchery-produced seed oysters grown in floating
cages by students.
Submerged Aquatic Vegetation Restoration
An evaluation of the feasibility of using volunteer divers to
restore seagrass was developed. A protocol was created to train
volunteers in water quality monitoring and seagrass transplantation
techniques.
Kelp Forest Restoration
Community dive groups were trained in kelp reforestation
activities, including the preparation, planting and maintenance of kelp
sites, documentation of growth patterns, and changes in marine life
attracted to the newly planted kelp areas.
Wetland Plant Nursery
An innovative wetland nursery program was implemented in local high
schools, where science and ecology classes build wetland nurseries on
campus to grow salt marsh grasses for local restoration efforts.
[[Page 55822]]
Derelict Fishing Gear Removal
A pilot project consisted of developing protocols and conducting
initial removal efforts. After surveying, locating, and mapping
derelict fishing gear, a minimum of 11 tons of lost and abandoned
fishing gear was removed by licensed and certified divers.
Nuisance Dam Removal
Two small stone dams blocked fish migration, and degraded water
quality and prey habitat conditions for anadromous fish. The dams,
while only several feet high, also presented a public safety hazard.
This project resulted in opening stream habitat to anadromous fish,
restoring acres of tidal wetlands, and removal of a public safety
hazard.
Riparian Habitat Restoration
Youth corps members were trained in the use of biorestoration and
stabilization techniques to restore eroding riverbanks and improve
habitat for salmon smolt and other fish species.
Diadromous Fish Habitat Restoration
Highly functional salmonid and wildlife habitat was restored with
the cooperation of private landowners by opening silted enclosures
along a slough to provide refuge for juvenile salmonids during the
winter flood flows.
Dated: September 22, 2008.
James W. Balsiger,
Acting Assistant Administrator for Fisheries, National Marine Fisheries
Service.
[FR Doc. E8-22708 Filed 9-25-08; 8:45 am]
BILLING CODE 3510-22-S