[Federal Register Volume 60, Number 154 (Thursday, August 10, 1995)]
[Notices]
[Pages 40837-40841]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 95-19795]
-----------------------------------------------------------------------
ENVIRONMENTAL PROTECTION AGENCY
[FRL-5275-6]
Office of the Federal Environmental Executive; Guidance for
Presidential Memorandum on Environmentally and Economically Beneficial
Landscape Practices on Federal Landscaped Grounds
AGENCY: Office of the Federal Environmental Executive, EPA.
ACTION: Notice.
-----------------------------------------------------------------------
SUMMARY: This document announces guidance developed by the interagency
workgroup under the direction of the Federal Environmental Executive to
assist federal agencies in the implementation of environmentally and
economically beneficial landscape practices. This guidance is in
response to the requirements of the executive memorandum on
Environmentally and Economically Beneficial Landscape Practices on
Federal Landscaped Grounds.
FOR FURTHER INFORMATION CONTACT: Debra Yap, (202) 260-9291.
SUPPLEMENTARY INFORMATION: On April 26, 1994, the President issued a
memorandum to Federal agencies addressing landscape management
practices on federal landscaped grounds. In developing the implementing
guidance, the Federal Environmental Executive sought public comment
through a Federal Register ``Notice, Review & Comment.'' This guidance,
as written by the interagency taskforce, represents the culmination of
discussions among interested parties, industry and government, and the
responses to the Federal Register Notice.1
\1\ Federal Register, Vol. 59, No. 161, Monday August 22, 1994.
The Executive Memorandum was incorporated and printed in the Notice,
Review & Comment.
---------------------------------------------------------------------------
The principles identified here provide a framework for the use of
environmentally and economically beneficial landscape practices on
managed federal lands and federally-funded projects. They are meant to
improve and expand upon current principles of landscape design,
implementation and management. They are intended to assist in federal
planning and decision-making and can be incorporated into federal
agency guidance/policy for landscape management practices.
As identified in the memorandum the guidance focuses on 5 (five)
guiding principles: (1) Use regionally native plants (see definition
below) for landscaping; (2) Design, use or promote construction
practices that minimize adverse effects on the natural habitat; (3)
Seek to prevent pollution; (4) Implement water and energy efficient
practices; (5) Create outdoor demonstration projects.
This guidance is intended to promote principles of ``sustainable
landscape design and management'' which recognizes the interconnection
of natural resources, human resources, site design, building design,
energy management, water supply, waste prevention, and facility
maintenance and operation. In general, sustainable design embodies the
concept that,
* * * human civilization is an integral part of the natural world
and that nature must be preserved and perpetuated if the human
community is to sustain itself indefinitely.2
\2\ p. 4, Guiding Principles of Sustainable Design, U.S.
Department of the Interior, National Park Service, Denver Service
Center, September 1993.
---------------------------------------------------------------------------
Sustainable landscape management seeks to minimize impact on the
environment and maximize the value received for the dollars expended.
Sustainable landscape design is economically beneficial in its
principle of evaluating and optimizing the full life-cycle of products
and processes: cost is considered from initial design through the life
of the project. For example, although sustainable site design and
development may have a higher initial cost, it may prove economical
over the life of the project.
[[Page 40838]]
In this example, a well-designed and implemented plan can result in
healthier, longer-lived plantings which rely less on pesticides and
fertilizers, minimize water use, require less maintenance, and increase
erosion control. Sustainable landscape design considers the
characteristics of the site and soil, intended effect and use of the
developed area, in addition to the selection of plants.
It is not the intent of this guidance to supersede federal agency
directives, policy, or other guidance which relate to the mission of
that agency or to health and safety concerns. It is not intended to
supersede agency objectives or guiding principles such as those
pertaining to the National Park Service's four primary management
zones--natural, cultural, park development, special use--and their
subzones; or those pertaining to the Forest Service's National
Hierarchy and Recreation Opportunity Spectrum classification systems.
Finally, this guidance does not advocate replacement of existing
landscapes, unless it is cost-effective to do so.
Intent of Guiding Principles
The following describes the intent of the implementing guidance and
discusses opportunities for federal initiatives. These opportunities
are not all-inclusive and federal agencies are encouraged to
investigate other initiatives for environmentally and economically
beneficial landscaping practices.
1. Use Regionally Native Plants for Landscaping
In the selection of plants for managed federal lands and federally-
funded projects, the federal government has the opportunity to choose
plants which are aesthetically pleasing, require minimal care, and
reflect a ``sense of place,'' i.e. the physical, or symbolic
representations of a community or area. By carefully selecting the
``right plants for the right place'' and matching plant characteristics
to site and soil conditions, federal agencies can promote sustainable
landscapes. Characteristics of sustainable landscapes include:
minimizing water use, reducing the need for pesticides and fertilizers,
reducing maintenance costs, utilizing hardy plants, and increasing
erosion control. Where the appropriate conditions exist, regionally
native plants offer the advantages of natural adaptation to the
climatic and geologic environments. In addition, use of regionally
native plants can promote regional identity, and enhance wildlife
habitat and biodiversity.
2. Design, Use or Promote Construction Practices That Minimize Adverse
Effects on the Natural Habitat
Construction practices can adversely affect and alter natural and
other habitat. Federal projects can be sited, designed, and constructed
to minimize that impact. Federal agencies can incorporate elements of
sustainable design into their architectural and engineering plans and
specifications for projects planned, designed, and constructed by
federal agency or contractor personnel.
Structures can be integrated with the existing plant and animal
communities and cultural (human) environments. Considerations include
such elements as: ecology of the site; human factors (i.e. historic
issues, mission, adjacent land use, and local culture, neighboring
communities); water/energy use; pollution prevention and other special
issues.
Impact on existing vegetation can be minimized by protecting and
integrating plants into the site design. Analyses of the soil and
subsurface material are important to the later success of existing and
future plantings. These analyses can also indicate the existence of
toxic or other undesirable material.
Additional beneficial construction practices which minimize adverse
impacts to natural habitat include the proper disposal of construction
waste and debris such as paints and other chemicals, concrete, and
other building material.
3. Seek to Prevent Pollution
Pollution prevention is a national policy and one of the principles
of sustainable landscape management. The primary tenet is: whenever
feasible, pollution should be prevented or reduced at the source, and
where pollution cannot be prevented, it should be recycled in an
environmentally safe manner. Executive Order 12856, ``Federal
Compliance with Right-to-Know Laws and Pollution Prevention
Requirements'' was issued to ensure that
* * * all Federal agencies conduct their facility management and
acquisition activities so that, to the maximum extent practicable,
the quantity of toxic chemicals entering any wastestream, including
any releases to the environment, is reduced as expeditiously as
possible through source reduction; that waste that is generated is
recycled to the maximum extent practicable; and that any wastes
remaining are stored, treated or disposed of in a manner protective
of public health and the environment * * * 3
\3\ Executive Order 12856 of August 3, 1993 ``Federal Compliance
with Right-to-Know Laws and Pollution Prevention Requirements'',
Federal Register Vol. 58, No. 150, Friday, August 6, 1993.
---------------------------------------------------------------------------
In keeping with the executive order and the principles of sustainable
landscapes practices, the following initiatives have been identified as
having a salutary effect on landscape management.
Manage Pesticides and Fertilizers
The improper use of pesticides and fertilizers contributes to the
pollution of both surface and groundwater in the United States. Using
effective landscape management practices, and appropriate application
of pesticides and fertilizers, federal agencies may minimize that
impact on water quality as well as to other aspects of the environment.
Further, federal agencies may better manage soil amendments and
fertilizers by utilizing soil and plant tissue samples analyses which
can indicate soil deficiencies and nutrient use. The recommended method
of managing pests and pesticides is called Integrated Pest Management
or IPM as described below.
Use IPM
Through the use of appropriate control measures and proper
application, IPM can result in a reduction in the use of chemicals
contained in pesticides which may adversely impact human health and the
environment. Integrated Pest Management is a decision-making process
which considers cultural, mechanical, biological, and chemical controls
of pests. Control mechanisms are selected as each situation warrants.
Where chemical control is used, specific pest populations are targeted
when they are most vulnerable rather than indiscriminate application of
these chemicals.
Minimize Runoff
Uncontrolled runoff adversely impacts the environment: (1) As a
major contributor to soil erosion; and (2) the primary vehicle for
chemical pollutants to be introduced into the environment (particularly
non-point source runoff). Federal agencies can ameliorate adverse
impacts associated with run-off through a variety of preventative
mechanisms: physical; vegetative, and operational. For example, grasses
have been demonstrated to be a viable mechanism for minimizing run-off
and controlling soil erosion. A viable method of managing the
pollutants associated with the first flush of stormwater run-off is
bioretention of the storm water in an appropriately landscaped area.
[[Page 40839]]
Recycle Landscape Trimmings
Federal agencies have the opportunity to effect both good landscape
management practices and good waste management practices by recycling
and using recycled landscape trimmings. A significant portion of what
is treated as waste is comprised of leaves, grass clippings, plant
trimmings, and woody material. These elements are a desirable resource
for composted material, mulches, and landscape amendments. By using
these products, federal agencies can effectively and economically
enrich the soil, promote plant growth, preserve soil moisture, reduce
erosion, and inhibit weed growth.
4. Implement Water and Energy Efficient Practices
Irrigating lawns and landscapes can account for a significant
proportion of total water use, particularly during peak watering
season. Reducing the inefficient irrigation of lawns and landscapes
with potable water can reduce water cost, and the energy usage/cost
associated with water pumping. In addition, water use efficiency can
relieve the increasing demand being placed on water resources,
distribution systems, and wastewater treatment systems.
Federal facilities can effectively reduce water use and conserve
potable water through a number of practices. For example, water usage
can be reduced through the use of mulches and careful selection and
siting of plants. Plants adapted to local conditions can be selected so
supplemental water will not be required after an initial establishment
period of 3-5 years. Other water-efficient landscape practices include:
determining the water requirements for discrete water-use zones; using
and maintaining efficient irrigation systems; and watering only as
needed. A water-efficient and cost-effective manner of irrigation which
is becoming increasingly popular, where available, is the use of
recycled or reclaimed water.
Recent legislation, as well as recent executive orders, reflect the
federal government's commitment to energy and water conservation.
Water-efficient landscape practices contribute two-fold: first, to the
conservation of fresh, potable water; and second, to the conservation
of energy associated with the distribution and treatment of water.
Landscape practices may also directly impact energy conservation by
siting plants to provide shade and cooling to paved surfaces and
building structures resulting in reduced building cooling loads.
Conversely, plants may also be sited such that they optimize solar heat
gain and inhibit heat loss during cooler periods to reduce building
heating loads.
To assist agencies in meeting the energy and water conservation
requirements mandated by the Energy Policy Act of 1992 [Public Law 102-
486, October 24, 1992], the Department of Energy was directed to
establish the Federal Energy Efficiency Fund. Administered by the
Federal Energy Management Program office, the fund provides grants to
agencies for energy and water conserving projects. Grant proposals are
competitively assessed for their technical and economic effectiveness.
Water conserving landscapes are eligible to compete for grants under
this fund.
5. Create Outdoor Demonstration Projects
Landscape demonstration projects promote public awareness and
education and can be a catalyst for similar initiatives by the general
public as well as other governmental agencies. They can also aid in the
development and expansion of beneficial techniques and technologies.
Outdoor demonstration projects are an effective method of promoting and
sharing information about environmentally sensitive landscape
approaches and the use of environmentally and economically beneficial
landscape practices. Outdoor demonstration projects can also showcase
partnership opportunities among industry, academia, and other
governmental agencies. Cooperative agreements can assist in the
development of technologies and techniques in such areas as recycled or
reclaimed water use.
Other Initiatives
To further promote and demonstrate that environmentally beneficial
practices can be both beautiful and economical, the Executive
Memorandum identified a number of initiatives. These include: (1) The
establishment of annual awards to recognize outstanding efforts in site
design, and development, landscaping management practices of agencies
and individual employees; and (2) the requirement for the Department of
Agriculture to conduct research on the sustainability, propagation and
use of native plants.
Establishment of Annual Award
The Office of the Federal Environmental Executive in conjunction
with the Department of Energy's Federal Energy Management Program
(FEMP), has established an annual award recognizing outstanding efforts
by agencies and individual employees in the demonstration of beneficial
landscape management practices. This annual award has been incorporated
into FEMP's Annual Federal Energy and Water Conservation Award Program.
In October 1995, the winners of the first annual Beneficial Landscape
Practices award will be announced.
Research by the Department of Agriculture in Cooperation With
Other Agencies on Suitability, Propagation and Use of Native Plants for
Landscaping
As identified in the National Performance Review, Accompanying
Report: Reinventing Environmental Management, barriers to the use of
native plants include: limited availability of native plants; lack of
knowledge about the use, maintenance, and propagation of native plants;
the more prevalent use of exotic species; and the spread of invasive
exotics. The U.S. Department of Agriculture possesses experience and
expertise in the development of plants, management of federal lands,
and conservation of soils. By working with other federal agencies,
universities, botanic gardens, arboreta, and commercial nurseries, the
USDA's Agricultural Research Service and Natural Resource and
Conservation Service can further the use of native plant species in the
landscape. In addition, the USDA has been directed to make information
available to agencies and the public on the suitability, propagation
and use of native plants for landscaping.
Guidelines
Applicability
These guidelines are meant to assist Federal decision-making at the
agency and facility level. Where cost effective and to the maximum
extent practicable, they shall be incorporated into agency guidance and
policy and reflected in agency landscape management practices, site
design, and development. These guidelines apply to decisions regarding
landscape management practices, site design, and development on Federal
grounds and at Federal projects in any state of the United States, the
District of Columbia, the Commonwealth of Puerto Rico, Guam, American
Samoa, the United States Virgin Islands, the Northern Mariana Islands,
and any other territory or possession over which the United States has
jurisdiction. Federal facilities located outside the customs territory
of
[[Page 40840]]
the United States and Federal agencies at overseas U.S. facilities are
encouraged to abide by the principles set forth in the Executive
Memorandum and these guidelines. Where Federal funding is provided to
support landscaping projects on non-federal lands, these guidelines
shall also apply.
The policies and recommendations set out in this document are not
final action, but are intended solely as interpretive guidance for
implementation of the Executive Memorandum on Environmentally and
Economically Beneficial Landscape Practices on Federal Landscape
Grounds by affected Federal government agencies. This Guidance does not
supersede Federal agency policies or directives or established
regulation. Nothing in this document shall create any right or benefit,
substantive or procedural, enforceable by any party against the United
States, its agencies or instrumentalities, its officers or employees,
or any other person.
Definitions
Native Plant
A native plant species is one that occurs naturally in a particular
region, ecosystem and/or habitat without direct or indirect human
actions.
Pesticide
A pesticide is ``any substance or mixture of substances: (a) For
preventing, destroying, repelling, or mitigating any pest, or (b) for
use as a plant regulator, defoliant, or desiccant.'' [FIFRA Section
2(u)]
Pest
A pest is ``(1) any insect, rodent, nematode, fungus, weed, or (2)
any other form of terrestrial or aquatic plant or animal life or virus,
bacteria, or other micro-organism (except viruses, bacteria, or other
micro-organisms on or in living man or other living animals) which the
Administrator declares to be a pest.'' [FIFRA Section 2 (t)]
Compliance With the National Environmental Policy Act (NEPA)
The National Environmental Policy Act (NEPA) provides a mandate and
a framework for federal agencies to consider all reasonably foreseeable
environmental effects of their actions. Where Federal projects or
federally-funded activities or projects considered in the NEPA process
include landscape considerations, draft and final NEPA documentation
and Record of Decision for the proposed action and alternatives, as
applicable, shall reflect the recommendations established in this
Guidance.
1. Use of Regionally Native Plants for Landscaping
Federal agencies, Federal projects or federally-funded projects,
shall incorporate regionally native plants in site design and
implementation where cost-effective and to the maximum extent
practicable. Federal agencies shall strive to avoid or minimize adverse
impacts of proposed actions or projects on existing communities of
native plants.
Federal agencies shall ensure that the appropriate site and soil
analyses are performed during pre-design stages of the project. To aid
in proper plant selection and to ensure success of the plantings,
analyses should match plant characteristics with site and soil
conditions. Site design and implementation as well as plant selection
shall incorporate such considerations as their biological needs,
minimal plant care, low water use, and minimal need for fertilizers and
pesticides.
Plants selected shall be in character with the project site plant
communities. Those plants selected for Federal landscape projects or
federally-funded landscape projects shall be nursery propagated from
sources as close as practicable to the project area. Native plants
collected from existing indigenous populations shall not be used unless
they are salvaged from an area where they would otherwise be destroyed
in the near-term. Where native plant seeds are to be used for federal
projects, they should be unadulterated by other plant species. Federal
agencies should ensure that appropriate actions are taken to support
the success of native plant species used for Federal or federally-
funded landscaping projects.
2. Design, Use, or Promote Construction Practices That Minimize Adverse
Impacts on the Natural Habitat
Federal agencies, Federal projects or federally-funded projects
shall avoid or minimize adverse impacts to natural habitat. During
preliminary selection of sites for Federal or federally-funded
projects, Federal agencies shall avoid sites which are relatively
undisturbed. If such areas cannot be avoided, Federal agencies should
employ construction practices and procedures which minimize adverse
impacts to natural habitat and incorporate existing vegetation and
associated natural habitat into the project. Where new projects require
use of a relatively undisturbed site, site clearing and preparation
should be limited in order to prevent unnecessary adverse impacts.
Where adverse impacts to natural habitat occur as a result of Federal
or federally-funded projects, Federal agencies shall mitigate impacts
to natural habitat on-site where feasible. On-site and off-site
compensatory mitigation shall fully reflect lost natural habitat
values.
Federal site design and development should consider: environmental
elements, human factors, context, sustainability, and pertinent special
issues. Development of the site should include assessments of the soil
and subsurface material.
Project decision-makers, including designers, contract supervisors,
contractors, field inspectors, site or facility master planners, and
maintenance personnel shall either be knowledgeable of or informed of
likely project related impacts to natural habitat. Where existing
plantings are incorporated into the site design, they shall be
adequately protected from construction activities. Project plans and
specifications shall include explicit direction regarding construction
practices to meet the goals of this guidance. On-site project managers
and contractors shall ensure that practices which minimize impacts to
natural habitat are followed during project construction. Such
practices may include site management to control soil erosion and non-
point source run-off and proper disposal of construction material and
debris. Where practicable, personnel responsible for on-site
construction practices, including contractors and construction
inspectors, shall be knowledgeable about natural habitat resources.
3. Seek to Prevent Pollution
Federal agencies, Federal projects or federally-funded projects
shall use chemical management practices which reduce or eliminate
pollution associated with the use of chemical fertilizers and
pesticides. Wherever practicable, Federal agencies shall employ
practices which avoid or minimize the need for using fertilizers and
pesticides. These practices include, but are not limited to: selection
of plant species that do not require chemical fertilizers and
pesticides; use of landscape management products and practices that
limit growth of ``weed'' species; use of integrated pest management
techniques and practices; use of chemical pesticides which biodegrade,
and use of slow-release fertilizers.
Federal agencies shall recycle and/or compost leaves, grass
clippings, and landscape trimmings for further use as both soil
amendments and mulches. Woody debris such as tree trunks,
[[Page 40841]]
stumps, limbs, etc., resulting from federally-funded activities shall
also be recycled as appropriate.
Federal agencies shall use landscape management practices,
including plant selection and placement, which control and minimize
soil erosion, runoff of chemicals, and pollution of groundwater.
Federal agencies shall also consider energy and water conservation
benefits in the siting and selection of plants.
Federal agencies and facilities subject to the requirements of
Executive Order 12856 shall identify those chemicals used at their
facilities for landscape management and develop alternative landscape
management practices to reduce or eliminate the use of those chemicals.
4. Implement Water and Energy Efficient Landscape Practices
Federal agencies, Federal projects or federally-funded projects,
shall use water-efficient landscape design and management practices.
These practices (such as Xeriscape) shall include planning and
designing landscaping projects with consideration to: watering
requirements, existing vegetation, topography, climate, intended use of
the property and water-use zones. In addition, facility managers shall
conduct soil analyses and, as appropriate, amend the soil at the
project site to improve its ability to support plants and retain water.
Initial site design as well as the addition of plants in established
areas shall seek to establish water-use zones and promote efficient
irrigation practices.
Where irrigation systems have been installed, irrigation scheduling
should be adjusted seasonally to the evapo-transpiration rate (ET) for
the plants in that particular climate.
Irrigation with recycled or reclaimed water, where practicable,
shall serve as a preferred alternative to the use of potable water.
Finally, Federal agencies and facilities, Federal projects and
federally-funded projects, are encouraged to use water audits to
identify additional opportunities for water-efficient landscape
practices.
5. Create Outdoor Demonstration Projects
Federal agencies, Federal projects or federally-funded projects,
shall create and maintain outdoor demonstration projects exhibiting and
promoting the benefits of economically and environmentally sound
landscaping practices. These exhibits may include the selection and use
of native plant species and the use of water-efficient and energy-
conserving practices. Exhibits may include small scale projects, such
as interpretive or wildlife gardens, that focus on environmentally
sound landscape management practices, site design, and development
appropriate for residential, commercial, and institutional application.
Additionally, demonstration projects may highlight larger projects,
such as wetland or grassland restoration or woodland rehabilitation,
that are more likely implemented by groups or state and local
governments. Federal agencies are encouraged to form public/private
partnerships with groups such as educational institutions, arboreta,
commercial nurseries, botanic gardens and garden clubs, to advance the
goals of the Executive Memorandum. Federal agencies are encouraged to
work with and share information with other interested nonfederal
parties to promote the use of environmentally and economically sound
landscaping practices.
Fran McPoland,
Federal Environmental Executive.
[FR Doc. 95-19795 Filed 8-9-95; 8:45 am]
BILLING CODE 6560-50-P