95-5873. Wetland Delineator Certification Program  

  • [Federal Register Volume 60, Number 49 (Tuesday, March 14, 1995)]
    [Proposed Rules]
    [Pages 13654-13662]
    From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
    [FR Doc No: 95-5873]
    
    
    
    =======================================================================
    -----------------------------------------------------------------------
    
    DEPARTMENT OF DEFENSE
    
    Department of the Army
    Corp of Engineers
    
    33 CFR Parts 320, 325 and 333
    
    
    Wetland Delineator Certification Program
    
    AGENCY: Army Corps of Engineers, DOD.
    
    ACTION: Proposed rule.
    
    -----------------------------------------------------------------------
    
    SUMMARY: The U.S. Army Corps of Engineers (Corps) is establishing a 
    program for the training and certification of individuals as wetland 
    delineators. The intent of the Wetland Delineator Certification Program 
    (WDCP) is: (1) To improve the quality and consistency of wetland 
    delineations submitted to the Corps, and (2) to streamline the 
    regulatory process by developing procedures for expediting review and 
    consideration of delineations submitted by certified delineators. We 
    are publishing this proposed rule today to provide the public the 
    opportunity to assist us in the development of the WDCP.
    
    DATES: Written comments must be submitted on or before April 13, 1995.
    
    ADDRESSES: Written comments must be submitted to: The Chief of 
    Engineers, United States Army Corps of Engineers. ATTN: Ms. Karen 
    Kochenbach, CECW-OR, Washington, DC 20314-1000.
    
    FOR FURTHER INFORMATION CONTACT: Ms. Karen Kochenbach or Mr. Sam 
    Collinson at the Office of the Chief of Engineers at (202) 272-0199.
    
    SUPPLEMENTARY INFORMATION:
    
    Background
    
        The Corps regulates activities involving the discharge of dredged 
    or fill material into waters of the United States, including wetlands, 
    pursuant to Section 404 of the Clean Water Act (CWA). In accordance 
    with Section 307(e) of the Water Resources Development Act of 1990 
    (WRDA 90), the Corps is establishing the WDCP. Section 307 (e) of WRDA 
    90 authorizes the Secretary of the Army to establish a program for the 
    training and certification of individuals as wetland delineators. 
    Pursuant to this authority, the Corps conducted demonstration projects 
    in the Baltimore, Jacksonville, and Seattle districts.
        The Wetland Delineator Certification Program (WDCP) was initially 
    announced in the Federal Register on December 30, 1992 (57 FR 62312). 
    This notice introduced the WDCP and provided specifics on participation 
    in the three demonstration projects. On [[Page 13655]] April 16, 1993, 
    we published a second announcement in the Federal Register (58 FR 
    19806) concerning the availability of draft training materials 
    developed for the WDCP. Corps districts nationwide issued public 
    notices concurrently with these notices, and numerous publications 
    chose to include brief articles in their professional journals on the 
    WDCP.
        The concept of providing expedited acceptance of wetland 
    delineations by consultants and contractors similar to the goals of the 
    WDCP has previously been informally implemented by a few Corps 
    districts on a limited basis. In those cases, the Corps districts 
    established informal procedures for expeditious review and acceptance 
    of wetland delineations performed by qualified individuals. Like those 
    informal approaches, there will be no requirement for wetland 
    delineators to be certified under the WDCP in order to submit wetland 
    delineations to the Corps; however, the Corps will handle wetland 
    delineations performed by wetland delineators it has certified more 
    expeditiously. Corps districts will retain discretion regarding the 
    acceptance of wetland delineations, including those accomplished by 
    certified delineators. The WDCP will affect the Corps', U.S. 
    Environmental Protection Agency's (EPA), or U.S. Department of 
    Agriculture Natural Resources Conservation Service's (NRCS, formerly 
    the Soil Conservation Service (SCS)) authority to determine 
    jurisdiction for purposes of Section 404 of the CWA, but is intended to 
    provide expedited service to the public, while improving the accuracy 
    and consistency of wetland delineations submitted to the Corps by 
    consultants and contractors. The development of this program is also a 
    component of the Administration's August 24, 1993 Wetlands Plan 
    entitled ``Protecting America's Wetlands: A Fair, Flexible, and 
    Effective Approach.''
    
    Wetland Delineation Manual
    
        The four Federal agencies responsible for making wetland 
    delineations (i.e., the Corps, EPA, NRCS, and the U.S. Department of 
    Interior Fish and Wildlife Service (FWS) currently utilize the 1987 
    Corps of Engineers Wetland Delineation Manual (1987 Manual) for 
    identifying and delineating wetlands for purposes of Section 404 of the 
    CWA. As noted in the Administration's Wetlands Plan, the agencies will 
    continue to use the 1987 Manual pending completion of an on-going study 
    of the National Academy of Sciences (NAS) Committee on Wetlands 
    Characterization. The four Federal agencies noted above will review the 
    results of the NAS study, which is scheduled for completion at the end 
    of 1994, and determine if modifications to the 1987 Manual are 
    necessary. Certification under the WDCP will be based on demonstrated 
    abilities for delineating wetlands using the current Federal wetland 
    delineation methodology in use at the time of certification.
        Copies of the 1987 Manual are available from the National Technical 
    Information Service (NTIS), 5285 Port Royal Road, Attn: Order 
    Department, Springfield, Virginia 22171. Document #ADA 176 734, Phone 
    #(703) 487-4650. Copies of the supplemental guidance issued by the 
    Corps concerning use of the 1987 Manual (i.e., the October 7, 1991, 
    Questions and Answers, and the March 6, 1992, Clarification and 
    Interpretation memorandum) as well as the Administration's Wetlands 
    Plan of August 24, 1993, may be obtained by contacting the Regulatory 
    Branch of your local Corps district, the EPA Wetlands Hotline at (800) 
    832-7828, or the Regulatory Branch of Corps Headquarters (Office of the 
    Chief of Engineers) at (202) 272-0199.
    
    Current Practices/Past Problems
    
        On the average, the Corps makes a total of 30,000 jurisdictional 
    determinations a year, many of which involve wetlands subject to 
    regulation under Section 404 of the CWA. Jurisdictional determinations 
    are determinations that a wetland and/or waterbody is subject to 
    regulatory jurisdiction under Section 404 of the Clean Water Act or 
    Sections 9 and 10 of the Rivers and Harbors Act of 1899. While the 
    Corps will conduct a wetland delineation if requested to do so, many 
    applicants choose to hire the services of a consulting firm to perform 
    wetland delineations on their behalf. Because of delineation backlogs 
    in many Corps districts, this approach can expedite the wetland 
    delineation review process. However, the Corps routinely receives 
    inaccurate and inconsistent wetland delineations from applicants and/or 
    their representatives which nessitate modification(s) or 
    redelineation(s). When this occurs, the Corps must spend a greater 
    amount of time in making a determination of wetlands jurisdiction. By 
    relying more on private sector delineations the Corps will be able to 
    more efficiently utilize its limited staff for permit evaluations and 
    compliance.
        Although many districts have internal procedures currently in use 
    to determine competent wetland delineators, the Corps has not had one 
    uniform process for evaluating the demonstrated competence of wetland 
    delineators during its review of wetland delineations. It has been our 
    experience that wetland delineators who are properly trained and 
    experienced in the current Federal wetland delineation methodology 
    perform wetland delineations that are more accurate and consistent. 
    Consequently, these delineations require the Corps to spend less time 
    reviewing them for accuracy. These time savings are vital because Corps 
    districts spend a considerable amount of resources reviewing and 
    performing wetland delineations, whether delineations are made on-site 
    (based on a site visit) or off-site (based on an office determination 
    utilizing exiting available information, such as National Wetlands 
    Inventory maps and aerial photography).
        We are aware that application of any wetland delineation 
    methodology by persons who lack the requisite scientific and technical 
    knowledge, has the potential to result in inaccurate or inconsistent 
    wetland delineations. However, we anticipate that wetland delineations 
    performed by certified delineators will be of higher quality and 
    greater consistency, thereby allowing for an expedited wetland 
    delineation review process.
        Other organizations have or will be developing certification 
    programs in wetland science (e.g., the Society of Wetland Scientists), 
    and several States are also considering implementing certification 
    programs related to wetlands. The WDCP is a separate and distinct 
    program for wetland delineators who perform and submit wetland 
    delineations to the Corps, and has no relationship to, nor reciprocity 
    with, other certification programs currently in existence.
    
    Federal Government Certification
    
        The four Federal agencies primarily involved in wetland 
    delineations and Section 404 of the CWA (i.e., Corps, EPA, FWS, and 
    NRCS) have participated in interagency wetland delineation training 
    since 1989. The Corps manages this training, and experienced 
    delineators from the four agencies serve as instructors. The course is 
    continuously revised as necessary to ensure that Federal agency 
    personnel are presented with the current Federal wetland delineation 
    methodologies. Additionally, Corps, EPA, FWS, and NRCS wetland 
    delineators receive on-the-job training and gain valuable field 
    experience during the daily implementation of their wetland programs. 
    The agencies recognize the need to ensure that employees who perform 
    and/or verify wetland delineation possess the necessary training 
    experience. To facilitate the [[Page 13656]] goal of consistency in the 
    identification and delineation of wetlands, the Corps continues to work 
    with EPA, NRCS, and FWS to improve its training programs and field 
    staff capabilities, as included in the Administration's Wetlands Plan. 
    The Corps, based on these proposed regulations, will require completion 
    of the interagency wetland delineation training course (i.e., 
    Regulatory IV), in addition to two (2) years experience and an internal 
    evaluation of knowledge and abilities of its field staff responsible 
    for making jurisdictional determinations in wetlands, equivalent to the 
    requirements of certified delineators. Consistent with the intent of 
    the WDCP, Federal agencies which submit wetland delineations to the 
    Corps (e.g., the Federal Highway Administration), may benefit from 
    being certified by the Corps through the WDCP.
    
    Demonstration Program
    
        The purpose of the demonstration program of the WDCP was to 
    determine the appropriate level of wetland delineation capabilities 
    which should be required of individuals in order to receive expedited 
    review and consideration of their wetland delineations by the Corps. In 
    addition, the demonstration program was used to test draft written 
    tests and field practicums, assess individuals' wetland delineation 
    capabilities, and receive feedback on the training package designed for 
    use by certified wetland delineators in the training of others in the 
    current Federal wetland delineation methodologies. Provisional 
    certification was awarded to those WDCP participants successfully 
    completing the two-part test, pending the adoption of final regulations 
    that will result from the evaluation of comments received on the 
    regulation proposed today.
        The WDCP demonstration program involved projects in three Corps 
    districts, and began in March, 1993. The WDCP was initially announced 
    December 30, 1992 in the Federal Register, in addition to district 
    public notices. The projects took place in the States of: Washington, 
    Maryland, and Florida, administered by the Seattle, Baltimore, and 
    Jacksonville Districts, respectively, although participation was not 
    limited to applicants within the districts' boundaries. Applications 
    for provisional certification are no longer being accepted; districts 
    have completed the testing and evaluation of over 200 WDCP applicants. 
    There were no prerequisites nor fees charged for participation in the 
    demonstration projects. Because we believe that provisionally certified 
    individuals have demonstrated adequate wetland delineation knowledge 
    and ability, it is our intention to consider provisionally certified 
    individuals as certified wetland delineators under the final WDCP, 
    pending adoption of these regulations. The provisional certifications 
    will remain valid until a final rule is adopted for the WDCP.
    
    Written Test
    
        The written tests used by the three demonstration districts were 
    developed from the pool of questions used in the Federal interagency 
    wetland delineation training (Regulatory IV), and are based on the 
    current Federal wetland delineation methodology (i.e., the 1987 
    Manual), related technical guidance, and other wetland concepts covered 
    in the Regulatory IV training (e.g., soil taxonomy). Each demonstration 
    district prepared a written test from the pool of these multiple choice 
    questions. Over the years, the Corps has added, deleted, and/or 
    modified questions in the pool used in its wetland delineation training 
    to remain consistent with the current Federal wetland delineation 
    methodology. The passing score for the written exam administered during 
    the demonstration projects was 80%. We believe that proper training is 
    essential to the competency of wetland delineators, and the Corps tests 
    are designed to evaluate such training. We invite comments on this 
    testing approach, as well as comments on the tests, from those who have 
    participated in the demonstration program. We intend to standardize the 
    written tests for administration nationwide in the final WDCP.
    
    Field Practicum
    
        A field practicum was also administered by the demonstration 
    districts to those who successfully completed the written test. Like 
    the written test, the field practicum required WDCP applicants to have 
    an understanding of the three parameters used in wetlands delineation 
    (i.e., hydrophytic vegetation, hydric soils, and wetland hydrology), 
    and the procedures utilized to assess these characteristics consistent 
    with the 1987 Manual. During the field practicums, participants were 
    required to document the presence or absence of field indicators for 
    each of the three parameters by using data sheets to record field 
    observations, and by providing written explanations supporting their 
    conclusions. Eighty percent (80%) was also the passing score for the 
    field practicum. We believe that WDCP field practicums must be 
    procedurally and fundamentally the same from Corps district to Corps 
    district, and will standardize the practicum used during the 
    demonstration phase prior to nationwide implementation.
        Administration of the field practicum during the demonstration 
    program was influenced to some degree by the weather (e.g., snow in 
    Baltimore in March). We welcome comments on the consideration of 
    limiting these tests to the time period as determined by appropriate by 
    the districts, for example, the local growing season. Comments on the 
    field practicum are requested from those individuals who participated 
    in the demonstration program, and any recommendations for modifications 
    or other procedures that can be consistently administered in all 
    districts will be considered.
    
    Results
    
        Results of the demonstration program are provided in Table 1 below. 
    Overall, more than 3,000 WDCP information/application packages were 
    mailed to prospective applicants by the three demonstration districts 
    in response to public requests. Over 1500 applications were submitted, 
    and all were provided the opportunity to take the written exam. Of the 
    more than 900 that did so, fewer than 400 WDCP applicants passed the 
    written test. All of the individuals who passed the written test took 
    the field practicum, and over 85% passed. Currently there are almost 
    350 provisionally certified wetland delineators nationwide. Until 
    certification is defined through the adoption of final regulations, and 
    individuals are certified under the final WDCP, the names of 
    provisionally certified individuals will not be released by the Corps.
    
                                 Table 1.--Summary of WDCP Demonstration Program Results                            
    ----------------------------------------------------------------------------------------------------------------
                   No. of individuals                    Baltimore     Jacksonville       Seattle         Totals    
    ----------------------------------------------------------------------------------------------------------------
    Applied for participation.......................             496             501             642           1,639
    Took written test...............................             386             347             174             907
    Passed written test.............................       184 (48%)       148 (43%)        61 (35%)       393 (43%)
    [[Page 13657]]                                                                                                  
                                                                                                                    
    Took field practicum............................             184             148              61             393
    Passed field practicum..........................       152 (82%)      148 (100%)        49 (80%)       349 (88%)
    Provisionally certified.........................             152             148              49       349 (38%)
    ----------------------------------------------------------------------------------------------------------------
    
    Training
    
        A certificate of training in the current Federal wetland 
    delineation methodology, signed by a certified wetland delineator, 
    would be a mandatory prerequisite for all WDCP applicants. Prior to the 
    adoption of final regulations based on today's proposal, individuals 
    may satisfy this future prerequisite by obtaining a certificate 
    verifying completion of wetland delineation training in the current 
    Federal wetland delineation methodology from an instructor utilizing 
    the Corps 1993 WDCP draft training package. The availability of the 
    draft training package developed for the WDCP, was announced in the 
    Federal Register on April 16, 1993 (58 FR 19806). Copies were 
    distributed free of charge by the Corps Wetlands Research and 
    Technology Center (WRTC) at the Waterways Experiment Station (WES) in 
    Vicksburg, MS. A limited number of copies may still be available by 
    calling the WRTC at (601) 634-4217. An evaluation of the draft WDCP 
    training package is being conducted by the Corps, and a revised 
    training package will be developed for future use.
        A list of potential training sources available to the public 
    through private and academic institutions, is available from the 
    Regulatory Branch of your local Corps district office or the Office of 
    the Chief of Engineers in Washington, D.C. A certificate of completion 
    of the WDCP wetland delineation training would be issued by the 
    training source and required by the Corps for participation in the 
    final WDCP. At this time, training may be provided by individuals who 
    have received the training materials, regardless of whether or not they 
    are provisionally certified by the Corps. However, after the adoption 
    of final regulations for the WDCP, all training intended to meet this 
    prerequisite must be provided by a wetland delineator certified under 
    the final WDCP. It is the responsibility of the individual seeking 
    certification by the Corps under the WDCP to ensure that the training 
    meets the training prerequisite (i.e., that the training is provided by 
    a certified wetland delineator).
        The Corps will keep certified delineators and trainers abreast of 
    modifications and updates to the training materials, and will provide 
    lists of training sources offering the WDCP training. After a final 
    WDCP is adopted, all districts will maintain lists of both certified 
    wetland delineators as well as those who provide the requisite 
    training, and will make these lists available to the public, as 
    proposed in these regulations.
    
    The Wetland Delineation Certification Program (WDCP)
    
        The WDCP would require applicants to: (1) satisfy certain 
    prerequisites and (2) pass a two-part test.
    
    Prerequisites
    
        Prerequisites for entrance into the WDCP would consist of: (1) 
    Training in the current Federal wetland delineation methodology, and 
    (2) two (2) years of professional experience in wetlands delineation. 
    We feel training should consist of a combination of classroom and field 
    training specifically in the current Federal wetland delineation 
    methodology. Training must be conducted by an individual certified by 
    the Corp, and should consist of a minimum of 36 hours of instruction, 
    consistent with the training required of Corps, EPA, NRCS (formerly the 
    SCS), and FWS Federal agency staff who delineate wetlands for purposes 
    of Section 404 of the Clean Water Act. Comments are requested on 
    alternative training mechanisms which provide greater flexibility to 
    potential WDCP applicants. For example, comment is solicited in the use 
    of videotape or at-home study for the delivery of the training 
    material. One such alternative would allow individuals to study course 
    materials at home, and then spend one or two days at a training program 
    facility to receive hands-on instruction and to take the course exam. 
    This alternative would help to reduce travel expenses, may lower 
    tuition costs, and would reduce the time that a trainee would have to 
    miss work. The Corps is concerned, however, that non-classroom oriented 
    instructional methods may not provide training of a quality equivalent 
    to classroom instruction. Comments on the impact of quality resulting 
    from the alternative training methods taking into account the 
    requirement for hands-on training, course test, and third party exam, 
    are specifically sought as a part of this proposal. To satisfy the 
    experience requirement, WDCP applicants should have a minimum of 2 
    years experience delineating wetlands for Federal, State, tribal or 
    local governments, or the private sector. The WDCP applicant would have 
    to supply references of employers, including telephone numbers for 
    verification purposes, of references who can attest as to the WDCP 
    applicant's assertions regarding experience. The Corps reserves the 
    right to check a WDCP applicant's documented prerequisites. We welcome 
    comments on alternative approaches of satisfying the experience 
    requirement, such as documentation that a minimum number of wetland 
    delineations were accepted by the Corps prior to certification. 
    Acceptance into the WDCP (i.e., meeting all prerequisites) does not 
    guarantee certification. Applications for certification must be 
    accompanied by documentation (e.g., training certificate) that an 
    individual meets all prerequisites. We welcome comments on the proposed 
    prerequisites, as well as suggestions for other options.
    
    Tests
    
        Generally, WDCP applicants would submit a WDCP application form (to 
    be developed for the final WDCP) to the appropriate district, where it 
    would be considered in accordance with the final regulations. Qualified 
    WDCP applicants would be notified of the next available test date. 
    Testing will include a standardized written examination for nationwide 
    use, which must be passed before applicants proceed to the field 
    practicum. Based on the response to the demonstration projects, we are 
    proposing to offer the national written test sessions in all Corps 
    districts on the same date each month for the first three months of 
    nationwide implementation of the WDCP and quarterly thereafter. Field 
    practicums will be scheduled based on need (i.e., the number of WDCP 
    applicants which have first passed the written test). The field 
    practicums may vary slightly between divisions (the proposed geographic 
    limits of the validity of certifications made at the district level), 
    based on regional differences such as growing season, wetland type, and 
    some field [[Page 13658]] indicators, however, the field practicum 
    procedure will be identical nationwide. Comments on the appropriate 
    procedures and frequency of the field testing, particularly from 
    individuals who participated in the demonstration program, would be 
    helpful. We are proposing to limit the number of opportunities to 
    retake the tests without the benefit of additional training. WDCP 
    applicants who fail either the written or the field test are encouraged 
    to obtain additional training and/or experience prior to retesting.
    
    Certification
    
        Upon successful completion of the prerequisites and testing 
    requirements, the district would award a certification to the applicant 
    by mail. Certified wetland delineators would be required to include a 
    signed statement with all wetland delineations submitted to the Corps, 
    verifying that the information has been developed in accordance with 
    the current Federal wetland delineation methodology, and is subject to 
    legal penalties related to false information as provided for in 18 
    U.S.C. Section 1001 (18 U.S.C. Section 1001 provides that: Whoever, in 
    any manner within the jurisdiction of any department or agency of the 
    United States knowingly and willfully falsifies, conceals, or covers up 
    by any trick, scheme or device a material fact or makes any false, 
    fictitious, or fraudulent statements or representations or makes or 
    uses any false writing or document knowing the same to contain any 
    false, fictitious, or fraudulent statements or entry, shall be fined 
    not more than $10,000 or imprisoned not more than five years, or both.) 
    Certified wetland delineators would be contacted by the Corps as to the 
    completeness and accuracy of the wetland delineation submitted within 
    30 days if submitted in conjunction with a permit application, or 60 
    days if not (see 325.2(c)). Expedited review associated with wetland 
    delineations submitted by certified wetland delineators does not 
    guarantee shorter permit processing times, which will be the subject of 
    a future rulemaking action related to the Administration's Plan. The 
    issuance of a certification does not create or grant any property 
    interest or right for the certified wetland delineator, nor does it 
    create any rights for an individual relying upon a wetland delineation 
    made by a certified wetland delineator, but is intended to facilitate 
    the determination of jurisdiction by the Corps.
    
    Validity of Certifications
    
        Comments are requested on our intention to consider provisional 
    certifications issued by the demonstration districts valid as final 
    certifications after the WDCP is implemented nationwide. Comments are 
    also requested on the option of considering certifications (provisional 
    as well as final) valid in a broader geographic area than the 
    administering district's regulatory boundaries. While we are proposing 
    that certifications be issued by districts and considered valid within 
    the Corps Division in which the district exists, we invite comments on 
    other options (e.g., nationwide). In addition, we invite comments on 
    the need to further limit the validity of certifications in exceptional 
    situations involving unique geographic areas. For example, it may be 
    determined appropriate for certifications within Divisions which 
    include entities such as Alaska, Hawaii, Puerto Rico, and America 
    Samoa, etc., to limit the validity of certification to a smaller 
    geographic area. Certifications would remain valid for a period of five 
    (5) years; therefore recertification would generally be necessary once 
    every 5 years. Certifications would be subject to suspension or 
    revocation procedures (see Section 333.7) based on repeated poor 
    performance and/or submittal of inaccurate wetland delineations by 
    certified wetland delineators.
    
    Costs
    
        During the early years of the WDCP, costs to the Corps of 
    administering the program will likely exceed the savings in reduced 
    staffing needs associated with verifying wetland delineations. These 
    costs were monitored during the demonstration program to assess the 
    effect on budget and manpower allowances. The costs incurred by the 
    demonstration districts were, as expected, greater than the costs 
    anticipated during nationwide implementation due to the WDCP 
    developmental responsibilities required of these districts.
        Although the WDCP require the expenditure of a portion of the 
    regulatory budget for several years, we are not proposing to assess a 
    fee for certification. WDCP applicants will have incurred some costs 
    associated with satisfaction of the training prerequisites of the 
    program. In addition, it will be necessary for certified wetland 
    delineators to keep certifications current with the most recent Federal 
    wetland delineation methodology. Nonetheless, comments are requested on 
    the issue of fees associated with the WDCP, such as where fees should 
    be charged and why, and what should be the basis for such fees. 
    Although we expect Federal costs associated with nationwide 
    implementation of the WDCP to be higher initially, we are confident 
    that Federal labor costs will be reduced over the life of the program.
    
    Benefits
    
        The Corps, permit applicants, and the public will benefit from the 
    improved quality and consistency of wetland delineations the Corps 
    receives from certified wetland delineators. The public will benefit 
    from the expedited review and consideration of wetland delineations by 
    certified wetland delineators by the Corps. We believe that the program 
    will result in better service to the public by both the Corps and 
    private sector wetland delineators. It is anticipated that both the 
    Corps and the public will have greater certainty in consultants' or 
    contractors' wetland delineations as a result of the WDCP. Benefits are 
    expected to increase each year.
    
    Proposed Changes
    
    33 CFR 320.3(p)--Related Laws
    
        We are proposing to add Section 307(e) of the Water Resources 
    Development Act of 1990 authorizing the WDCP to the related laws 
    section.
    
    33 CFR 325.2(c)--Wetland Delineations Submitted by Certified 
    Delineators
    
        We are proposing procedures, requirements, and timeframes to 
    provide for expedited review of wetland delineations submitted by 
    certified delineators as required by Section 307(e) of the Water 
    Resources Development Act of 1990.
    
    33 CFR 333--Wetland Delineator Certification Program
    
        We are adding a new part to implement the WDCP. Section 333.1 
    Purpose and Section 333.2 General provide a statement of purpose and an 
    overview of the WDCP.
        Section 333.3 Definitions provides definitions of common terms used 
    in the WDCP. The proposed terms are ``accuracy determination'', 
    ``wetland delineation'', ``wetland determination'', ``jurisdictional 
    determination'', ``certification'', ``certified wetland delineator'', 
    ``expedited review'', ``suspension'', ``revocation'', ``substantial 
    inaccuracies'', and ``history of substantial inaccuracies''. We request 
    comments on these terms and the need to define additional terms.
        Section 333.4 Certification Process describes the procedures and 
    requirements necessary to be certified under the WDCP. This section 
    includes a discussion of the mandatory prerequisites and tests we are 
    proposing [[Page 13659]] to require of wetland delineators in order to 
    be certified by the Corps.
        Section 333.5 Validity of Certifications provides for the 
    geographic limits of where a certification would be considered valid in 
    order to receive expedited review by the Corps.
        Section 333.6 Recertification discusses the requirement for an 
    individual to keep the certification current in order to receive 
    expedited review by the Corps. We believe that certifications should 
    not be valid indefinitely and are proposing a five (5) year limit.
        Section 333.7 Suspension or revocation discusses the ability of the 
    Corps to suspend or revoke an individual's certification, if 
    appropriate, after an opportunity has been provided by the Corps for 
    the certified delineator to respond in writing to the District 
    Engineer's reasons for suspending or revoking the certification.
    
    Environmental Documentation
    
        We have made a preliminary determination that this action does not 
    constitute a major Federal action significantly affecting the quality 
    of the human environment. The WDCP is intended to improve the quality 
    and consistency of wetland delineations reviewed by the Corps, and to 
    expedite decisions regarding these delineations, but will have no 
    effect on the outcome of the jurisdictional determination. Furthermore, 
    appropriate environmental documentation is prepared for all permit 
    decisions on a case-by-case basis.
    
    Executive Order 12866
    
        The Department of the Army has made a preliminary determination 
    that these regulations do not contain a major proposal requiring the 
    preparation of a regulatory analysis under E.O. 12866. The Office of 
    Management and Budget has concurred. In addition, there has been, and 
    will continue to be, substantial interagency coordination on the WDCP 
    to ensure that the interests of other Federal agencies are considered 
    in the finalization of regulations for the WDCP.
    
    The Regulatory Flexibility Act
    
        The Department of the Army, pursuant to Section 605(b) of the 
    Regulatory Flexibility Act of 1980, has made a preliminary 
    determination that these proposed regulations will not have a 
    significant impact on a substantial number of small entities. 
    Implementation of the WDCP has the potential to be labor intensive for 
    the Corps, as was the case during the demonstration projects. While 
    costs to the Corps of administering the program during the early years 
    of the WDCP will likely exceed the savings in reduced manpower needs 
    associated with verifying wetland jurisdictional determinations, we are 
    confident that labor costs will be reduced over the life of the 
    program. These costs were monitored during the demonstration program to 
    assess the effect on budget and manpower allowances, and costs varies 
    among the three participating Districts. Although the WDCP will require 
    the expenditure of a portion of the regulatory budget for several 
    years, we do not intend to assess a fee for certification. WDCP 
    applicants will already have incurred expenses to obtain the necessary 
    training as needed to meet the prerequisites of the program. In 
    addition, it will be necessary for certified wetland delineators to 
    keep certifications current with the most recent Federal wetland 
    delineation methodology. We have taken steps, however, to minimize 
    labor requirements on Corps districts in the implementation of the 
    final WDCP. For example, field practicums will be standardized and 
    necessary training provided to the districts, thereby eliminating the 
    time-consuming developmental process experienced by the demonstration 
    districts. Although we expect costs associated with nationwide 
    implementation of the WDCP to be higher initially, we are confident 
    that Federal labor costs will be deduced over the life of the program.
    
    Benefits
    
        The Corps, permit applicants, and the public will benefit from the 
    improved quality and consistency of wetland delineations the Corps 
    receives from certified wetland delineators. The public will benefit 
    from the expedited review and consideration of wetland delineations 
    submitted by certified wetland delineators by the Corps. We believe 
    that the program will result in better service to the public by both 
    the Corps and private sector wetland delineators. It is anticipated 
    that both the Corps and the public will have greater certainty in 
    consultants' or contractors' wetland delineations as a result of the 
    WDCP. Benefits are expected to increase each year.
    
        Note: (1) The terms ``district engineer'' or ``division 
    engineer'' should be considered to be interchangeable until 
    decisions are made as to the appropriate level of authority for 
    decisions regarding the WDCP, as set forth in the final regulations.
    
    List of Subjects
    
    33 CFR Part 320
    
        Environmental Protection, Intergovernmental relations, Navigation, 
    Water pollution control, Waterways.
    
    33 CFR Part 325
    
        Administrative practice and procedure, Intergovernmental relations, 
    Environmental protection, Navigation, Water pollution control, 
    Waterways.
    
    33 CFR Part 333
    
        Waterways, Training programs, Consultants, Reporting and record 
    keeping requirements.
    
        Dated: March 3, 1995.
    John H. Zirschky,
    Acting Assistant Secretary of the Army (Civil Works), Department of the 
    Army.
    
        For the reasons set out in the preamble, 33 CFR Parts 320 and 325 
    are proposed to be amended, and Part 333 is added to read as follows:
    
    33 CFR CHAPTER I--CORPS OF ENGINEERS, DEPARTMENT OF THE ARMY
    
    PART 320--GENERAL REGULATORY POLICIES
    
        1. The authority citation for Part 320 continues to read as 
    follows:
    
        Authority: 33 U.S.C. 401 et seq.; 33 U.S.C. 1344; 33 U.S.C. 
    1413.
    
        2. Section 320.3 is amended by adding a new paragraph (p) at the 
    end that reads as follows:
    
    
    Sec. 320.3  Related laws.
    
    * * * * *
        (p) Water Resources Development Act of 1990. Pursuant to Section 
    307(e) of the Water Resources Development Act of 1990 (Pub. L. 101-
    640), the Secretary of the Army has established a program for the 
    training and certification of individuals as wetland delineators for 
    purposes of submitting wetland delineations to the Corps. The Wetland 
    Delineator Certification Program also includes procedures for 
    expediting review and consideration of wetland delineations submitted 
    by wetland delineators it has certified.
    
    PART 325--PROCESSING DEPARTMENT OF THE ARMY PERMITS
    
        3. The authority citation of part 325 continues to read as follows:
    
        Authority: 33 U.S.C. 401 et seq.; 33 U.S.C. 1344; 33 U.S.C. 
    1413.
    
        4. Paragraph (c) is added to read as follows:
    
    
    Sec. 325.2  Processing of applications.
    
    * * * * * [[Page 13660]] 
        (c) Wetland delineations submitted by certified wetland 
    delineators--(1) General. The Corps intends to give expedited review to 
    wetland delineations submitted by certified wetland delineators, as 
    part of a request for wetland jurisdictional determinations.
        (2) Contents of wetland delineations. Certified wetland delineators 
    will submit wetland delineations to the appropriate Corps regulatory 
    office using the following format.
        (i) The wetland delineation submittal will include:
        (A)(i) A copy of the wetland delineator's certification.
        B(i) Drawings, plans and/or surveys, to scale, showing the acreage 
    and boundaries of the wetland in the project area, and
        (C) Completed data sheets in support of the documented wetland 
    boundary.
        (ii) In addition, submittals by certified wetland delineators will 
    include the name, address and telephone number of the person designated 
    to receive the results of the Corps' accuracy determination for Corps' 
    acceptance of the wetland delineation.
        (3) Corps approval. District Engineers will strive to make a 
    determination of completeness and accuracy of wetland delineations 
    submitted by certified wetland delineators within thirty (30) calendar 
    days of receipt if they are accompanied by a permit application, and 
    sixty (60) calender days if they are not.
        (i) The district engineer's determination of completeness and 
    accuracy of the wetland delineation submitted by a certified wetland 
    delineator will be made in writing and will consist of:
        (A) Request for additional information or corrections needed for 
    the Corps to make a determination of the accuracy of the wetland 
    delineation.
        (B) Acceptance of the wetland delineation by the Corps as 
    submitted, or
        (C) Acceptance with minor modifications identified and made by the 
    Corps.
        (ii) The Corps final acceptance of a certified wetland delineator's 
    submittal will represent the wetland delineation used in making the 
    jurisdictional determination, and will remain valid for a specified 
    period of time consistent with corps guidance as provided in the final 
    acceptance document. Resubmittal of corrected wetland delineations by 
    certified wetland delineators after an earlier submission has been 
    determined to have been incomplete or inaccurate will be subject to the 
    same time frames as the initial submittal.
    * * * * *
    
    PART 333--WETLAND DELINEATOR CERTIFICATION PROGRAM
    
        5. Part 333 is added to read as follows:
    
    PART 333--WETLAND DELINEATOR CERTIFICATION PROGRAM
    
    333.1. Purpose.
    333.2. General.
    333.3. Definitions.
    333.4. Certification Process.
    333.5. Validity of certifications.
    333.6. Recertification.
    333.7. Suspension or revocation of certifications.
    333.8. Maintenance of lists.
    
        Authority: 33 U.S.C. 1344.
    
    
    Sec. 333.1  Purpose.
    
        This section prescribes the policies, procedures, and guidance for 
    administration of the Wetland Delineator Certification Program (WDCP). 
    The purposes of the WDCP are:
        (a) To improve the quality and consistency of wetland delineations 
    submitted to the Corps either alone or in conjunction with a permit 
    application seeking to discharge dredge or fill material into waters of 
    the United States, and.
        (b) To streamline the regulatory process through the submittal of 
    wetland delineations which can be approved by the Corps in an expedited 
    manner (see 33 CFR 325.2(c) for a discussion of the expedited review 
    and consideration of delineators submitted by certified wetland 
    delineators).
    
    
    Sec. 333.2  General.
    
        The WDCP is a training and certification program for wetland 
    delineators who submit wetland delineations to the Crops. The Corps has 
    developed a training package for use by the others (e.g., the private 
    sector, the academic community, States) in the current Federal wetland 
    identification and delineation methodologies. WDCP applicants receive 
    training from sources utilizing certified wetland delineators and the 
    current training materials developed and provided to them for that 
    purpose by the Corps for the WDCP. In addition, the Corps has developed 
    a process to certify that wetland delineators have met certain minimum 
    standards (see Sec. 333.4 below). Furthermore, the Corps has 
    established a process to expedite decisions on wetland delineators 
    submitted by certified delineators (see Sec. 325.2(c)).
    
    
    Sec. 333.3  Definitions.
    
        For purposes of this regulation these terms are defined as follows:
        (a) The term accuracy determination refers to the process whereby 
    the District Engineer determines that a wetland delineation submitted 
    by a certified wetland delineator is consistent with the current 
    Federal wetland delineation methodology. Such delineations may include 
    some flaws which the Corps determines are minor and that can be easily 
    corrected.
        (b) The term wetland delineation means a final Corps of Engineers 
    delineation, or verification by the Corps of a delineation submitted by 
    an applicant or an applicant's representative, indicating the acreage 
    and boundaries of a subject property that is wetland in accordance with 
    the current Federal wetland delineation methodology. Additionally, the 
    term includes reverification of expired wetland delineations and 
    reverification of wetland delineation where new information has become 
    available that may effect the final wetland delineation.
        (c) The term wetland determination means a preliminary Corps of 
    Engineers determination as to whether or not wetlands exist on a 
    subject property.
        (d) The term jurisdictional determination means a final Corps of 
    Engineers determination that a wetland and/or waterbody is subject to 
    regulatory jurisdiction under Section 404 of the Clean Water Act or a 
    final Corps determination that a waterbody is subject to regulatory 
    jurisdiction under Sections 9 and 10 of the Rivers and Habors Act of 
    1899. Additionally, the term includes reverification of expired 
    jurisdictional determinations and reverification of jurisdictional 
    determinations where new information has become available that may 
    effect the final determination.
        (e) The term certification refers to the Corps' official 
    recognition that an individual has successfully demonstrated that he or 
    she is capable of performing wetland delineations consistent with the 
    current Federal wetland delineation methodology in use at the time of 
    certification.
        (f) The term certified wetland delineator means an individual who 
    has met all prerequisites and testing requirements of the Corps of 
    Engineers wetland delineator certification program. The certified 
    wetland delineator is able to submit wetland delineations to the Corps 
    and receive expedited review and decisions as to the completeness and 
    accuracy of the delineation.
        (g) The term expedited review means that, to the maximum extent 
    possible, [[Page 13661]] District Engineers will make all 
    determinations as to the completeness and accuracy of wetland 
    delineations submitted by certified wetland delineators within thirty 
    (30) calendar days of receipt in the case of wetland delineation 
    requests not associated with a permit application.
        (h) The term suspension means the temporary removal of a wetland 
    delineator's Corps certification, pending a decision by the District 
    Engineer on whether a certification should be revoked.
        (i) The term revocation means the removal of a delineator's 
    certification with an optional ban on recertification for a prescribed 
    revocation period.
        (j) The term substantial inaccuracies means non-minor inaccuracies 
    that, in the District Engineer's judgment, have materially affected the 
    completeness and accuracy of the delineation and/or have caused 
    substantial delays to the District in its review of the delineation. 
    Substantial inaccuracies may include, but are not limited to: the 
    inaccurate application of one or more of the field indicators for 
    vegetation, soils, or hydrology; the failure to follow appropriate 
    field sampling protocol or techniques; the submission of inaccurate or 
    incomplete data forms; or the reach of erroneous conclusions about the 
    presence and/or extent of wetlands at a site.
        (k) The term history of substantial inaccuracies means 2 or more 
    substantial inaccuracies in wetland delineations submitted to the Corps 
    by the same certified wetland delineator within the same District, or 3 
    or more substantial inaccuracies the Corps has documented in different 
    Districts, with at least one of these inaccuracies recorded in the 
    District contemplating a revocation action.
    
    
    Sec. 333.4  Certification process.
    
        (a) Prerequisites: The certification process is designed to 
    identify those individuals who possess the requisite knowledge and 
    skills necessary to conduct and appropriately document wetland 
    delineations consistent with the current Federal wetland delineation 
    methodology in use at the time of certification. The certification 
    process, which will be administered by Corps district offices, involves 
    two steps: meeting all prerequisites, and passing all tests.
        (1) The prerequisites will consist of written documentation 
    demonstrating that the WDCP applicant has:
        (i) At least two (2) years experience in delineating wetlands for 
    any Federal, State, or local governments, or the private sector, and
        (ii) Completed wetland delineation training as set forth in the 
    Corps training materials developed for the WDCP.
        (2) The training package will be made available only to training 
    sources for instruction by a WDCP certified wetland delineator.
        (b) Testing: The WDCP involves two (2) types of tests: a national 
    written test, and a regional field proacticum. WDCP applicants meeting 
    all prerequisites will be scheduled for the written test. A minimum 
    score of 80% will be required to successfully complete the written 
    test. WDCP applicants will be permitted to retake the written test a 
    maximum of three (3) times, or the field practicum a maximum of two (2) 
    times, unless the WDCP applicant can provide documentation that the 
    required training has been repeated since the last practicum. During 
    the practicum, WDCP applicants will be asked to collect data and 
    document conclusions. A minimum score of 80% on the field test will be 
    required. WDCP applicants who pass both the written test and field 
    practicum will receive documentation of certification by the applicable 
    Corps district.
        (c) Certification. In order to receive expedited review and 
    consideration by the Corps, certified wetland delineators will be 
    required to submit a copy of their certification, in addition to other 
    required documentation, to the Corps in conjunction with each request 
    for a verification of a wetland delineation. Wetland delineations 
    conducted in whole or in part by an uncertified individual may receive 
    expedited review and consideration if it is reviewed, adopted, and 
    signed by a Corps-certified wetland delineator. The certified wetland 
    delineator must state that the he or she has personally reviewed and 
    concurred with the wetland delineation and has found the documentation 
    to be satisfactory. By signature and submittal, certified wetland 
    delineators accept responsibility for the completeness and accuracy of 
    the wetland delineation, and are subject to the suspension or 
    revocation procedures described in Sec. 333.7, and legal penalties 
    regarding false information.
    
    
    Sec. 333.5  Validity of certifications.
    
        Generally, certifications made pursuant to these regulations will 
    be valid within the Corps division boundaries of the certifying 
    district. However, due to the unique features of wetland 
    characteristics in some districts (e.g., Alaska), Corps divisions may 
    confine the validity of certain certifications to a district or set of 
    districts. Certifications will remain valid for a period of five (5) 
    years, at which time recertification will be necessary.
    
    
    Sec. 333.6  Recertification.
    
        (a) Recertification through the WDCP will be required every five 
    (5) years, unless otherwise required by the Corps. WDCP applicants for 
    recertification may be expected to complete the testing requirements 
    (written, field, or both, as determined by the district) which have 
    been adopted for the final WDCP. If the Corps adopts use of a new 
    wetland delineation methodology, or events beyond the Corps' control 
    nullify the original certification of a wetland delineator made by the 
    Corps, recertification may be required at a greater frequency.
        (b) Minor changes in the Corps wetland delineation policy and/or 
    procedures will typically not require recertification. The Corps will 
    notify certified individuals of minor modifications by mail. The extent 
    of the modification will dictate the need for recertification (e.g, a 
    new wetland delineation manual may require recertification while use of 
    a new data form may not). Once notified, certified wetland delineators 
    will be expected to incorporate these modifications into all future 
    wetland delineations they submit. Failure to do so maybe grounds for 
    suspension of an individual's certification.
    
    
    Sec. 333.7  Suspension or revocation of certifications.
    
        (a) A District Engineer may suspend or revoke a delineator's 
    certification if the District Engineer determines that the wetland 
    delineations submitted by the certified wetland delineator exhibit a 
    history of substantial inaccuracies. Revocation will result in removal 
    of an individual from lists provided to the public, while suspension 
    will not. This will ensure that the list of certified wetland 
    delineators given to the public does not contain certified wetland 
    delineators that repeatedly perform and/or submit inaccurate wetland 
    delineations and thus delay, rather than expedite, the Corps acceptance 
    of wetland delineations.
        (b) Procedures--(1) Records. Districts will maintain accurate 
    records on all substantial inaccuracies identified in wetland 
    delineations submitted by certified wetland delineators. Whenever any 
    District identifies such an inaccuracy, the District will notify the 
    certified wetland delineator and allow the delineator to write a letter 
    explaining the inaccuracy. Such letter will be maintained in the 
    delineator's file. If the District discovers that a certified wetland 
    delineator has [[Page 13662]] submitted 2 or more substantially 
    inaccurate delineations to the District, or 1 substantially inaccurate 
    delineation to the District and 2 or more delineations to other 
    Districts, and the Chief of the Regulatory office believes that these 
    inaccuracies warrant revocation, than the Chief of the Regulatory 
    office should prepare, with the advice of counsel, a report for the 
    District Engineer substantiating these inaccuracies along with a 
    recommendation to revoke the delineator's certification.
        (2) Notification. If the District Engineer agrees that revocation 
    may be warranted. The District Engineer shall send a letter to the 
    delineator explaining:
        (i) That the District Engineer is considering whether to revoke the 
    delineator's certification.
        (ii) That the delineator's certification is suspended pending the 
    District Engineer's decision.
        (iii) The causes for the potential revocation, including the 
    substantial inaccuracies identified, and
        (iv) That the delineator has 30 days from receipt of the District 
    Engineer's letter to send a response letter providing mitigating or 
    extenuating circumstances, or stating a defense against the causes for 
    revocation.
        (3) Delineator response. In the response letter, the delineator 
    should include a complete explanation of any mitigating or extenuating 
    circumstances demonstrating that revocation is unwarranted. The 
    delineator should also provide any defenses to the stated causes for 
    revocation, including any assertion that he or she may choose to make 
    that no substantial inaccuracies occurred.
        (4) Review and decision. The District Engineer must consider any 
    certified wetland delineator response letter submitted. If a letter 
    raises any genuine issues of fact, the District Engineer, exercising 
    appropriate discretion, may decide to meet with the delineator to 
    discuss these issues. After considering all information gathered by the 
    District and submitted by the delineator, the District Engineer should 
    make the decision, based on a preponderance of the evidence, as to 
    whether or not to revoke the delineator's certification.
        (5) Notification of decision to delineator. Absent extenuating 
    circumstances, the District Engineer shall decide whether to revoke a 
    certification within 30 days of receiving the delineator's response 
    letter or any meeting with the delineator, whichever is later. A letter 
    stating the District Engineer's decision shall be sent to the 
    delineator by certified mail, return receipt requested.
        (6) Notification to other corps districts. If the District 
    Engineer's decision is to revoke a certification, the District shall 
    notify all other Corps Districts that the delineator is no longer 
    certified, and the individual's name will be removed from the list of 
    certified wetland delineators given to the public.
        (c) Revocation period. Revocation periods are measured from the 
    beginning of the suspension. The District Engineer should assign a 
    revocation period commensurate with the seriousness of the causes for 
    revocation, but no longer than 2 years. The District Engineer may 
    reduce the length of the revocation period after it is assigned, if new 
    information or other appropriate reasons develop. Delineators can apply 
    for recertification only after the revocation period has ended.
        (d) Scope of revocation. (1) A revocation only applies to the 
    certification of the person who signed the delineations identified as 
    inaccurate. Thus, a revocation cannot be imputed to other certified 
    delineator in the same consulting firm as a decertified delineator.
        (2) The revocation shall apply nationwide.
        (e) Appeal. A revocation may be appealed in writing to the Division 
    Engineer setting forth matters in extenuation, mitigation, or 
    disagreement with the revocation. After reviewing both the appeal 
    letter and the administrative record, the Division Engineer will 
    reverse the District Engineer's decision to revoke the delineator's 
    certification only if the determination is found to be arbitrary or 
    capricious. The Division Engineer must notify both the delineator and 
    the District Engineer of the decision. Only after the conclusion of 
    this appeal process may a delineator seek redress in Federal court.
    
    
    Sec. 333.8  Maintenance of lists.
    
        The Corps will maintain two (2) lists for the WDCP. The first will 
    be a list of individuals within a Division who have been certified by 
    one of its Districts through the final WDCP. The second will be the 
    list of training sources providing the prerequisite training. All 
    training intended to meet the mandatory prerequisite will be conducted 
    by a certified wetland delineator as an instructor. Both lists will be 
    available to the public.
    
    [FR Doc. 95-5873 Filed 3-13-95; 8:45 am]
    BILLING CODE 3710-92-M
    
    

Document Information

Published:
03/14/1995
Department:
Engineers Corps
Entry Type:
Proposed Rule
Action:
Proposed rule.
Document Number:
95-5873
Dates:
Written comments must be submitted on or before April 13, 1995.
Pages:
13654-13662 (9 pages)
PDF File:
95-5873.pdf
CFR: (10)
33 CFR 320.3
33 CFR 325.2
33 CFR 333.1
33 CFR 333.2
33 CFR 333.3
More ...