INTRODUCTION TO SECTION 4(f) Presented by Ian Chidister Environmental Program Manager FHWA – Wisconsin Division December 4, 2013

Overview 1.Background Information 2.General 4(f) Applicability 3.Protected 4(f) Resources 4.Types of 4(f) “Use” 5.Parks, Recreation Areas, and Refuges; other encumbrances 6.4(f) Process and Roles 7.Reference Resources BackgroundApplicabilityResourcesUseParks etc.ProcessReference

Background USDOT agencies have authority to administer 4(f) and make approvals; other agencies participate in consultation Called “4(f)” because it was originally section 4(f) of the Department of Transportation act of 1966 Codified in 23 USC 138 & 49 USC 303 Regulations in 23 CFR 774 Recently updated FHWA policy paper (2012) replaces 2005 version BackgroundApplicabilityResourcesUseParks etc.ProcessReference

General Applicability 1.Does the project require an approval from FHWA (funding or other)? 2.Is the project a transportation project? 3.Does the project require use of land from a protected 4(f) resource? 4.None of the regulatory applicability rules or exceptions applies (23 CFR & 13) BackgroundApplicabilityResourcesUseParks etc.ProcessReference

Protected 4(f) Resources 1.Parks and recreation areas of national, state, or local significance that are publicly owned and open to the public Resource assumed significant unless official with jurisdiction says it’s not 2.Publicly owned wildlife and waterfowl refuges of national, state, or local significance (may be open to the public) Resource assumed significant unless official with jurisdiction says it’s not 3.Historic sites of national, state, or local significance in public or private ownership regardless of whether they are open to the public Significant = eligible or listed on NRHP BackgroundApplicabilityResourcesUseParks etc.ProcessReference

Wisconsin Examples of Resources BackgroundApplicabilityResourcesUseParks etc.ProcessReference Photo Credits: Parks & Recreation Areas: Elver Park, Madison, WI

Wisconsin Examples of Resources BackgroundApplicabilityResourcesUseParks etc.ProcessReference Photo Credits: Publicly Owned Refuges: Horicon Marsh NWR, Mayville, WI

Wisconsin Examples of Resources BackgroundApplicabilityResourcesUseParks etc.ProcessReference Photo Credits: Historic Sites: Taliesin, Spring Green, WI

Types of 4(f) “Use” 1.Permanent incorporation of land into a transportation facility Most common kind of 4(f) use 2.Temporary Occupancy Use vs no use determination based on 5 conditions Property adversely affected, but not permanently incorporated If a temporary occupancy is determined to be a use, it must be documented using one of the 3 kinds of documentation 3.Constructive Use No land acquisition – proximity impacts only Must result in substantial impairment of activities, features, or attributes Requires coordination with FHWA HQ BackgroundApplicabilityResourcesUseParks etc.ProcessReference

Documenting Use 1.Full 4(f) Evaluation Can only be approved if no avoidance alternatives are feasible (engineering) and prudent (6 factors) Select alternative with least overall harm (7 factors) Incorporate all possible planning to minimize harm 2. De Minimis Finding Incorporates measures to minimize harm (avoid, minimize, mitigate, enhance) Does not require avoidance alternatives or feasible/prudent analysis 3.Programmatic Evaluation (5 types – see website) 5 types include: (1) bikeways/walkways, (2) historic bridges, (3) historic sites, (4) parks/rec areas/refuges, and (5) net benefit Require avoidance alternatives analysis and all possible planning to minimize harm BackgroundApplicabilityResourcesUseParks etc.ProcessReference

Parks, Recreation Areas, & Refuges Defining Factors: 1.Official Designation (Federal, State, Local) 2.Primary Purpose Demonstrated by a management plan or other documents 3.Significance Based primarily on the opinion of the official(s) with jurisdiction 4.Public Ownership Easements can constitute public ownership 5.Open to the Public Not necessary for refuge properties BackgroundApplicabilityResourcesUseParks etc.ProcessReference

Other Encumbrances Examples: 1.Land and Water Conservation Fund Act (Section 6(f)) 36CFR 59.3, National Park Service LWCF Assistance Manual 2.Wildlife Restoration Act (Pittman-Robertson Act) 50 CFR , FWS Fed Assistance Program Guidance 3.Sport Fish Restoration Act (Dingell-Johnson Act) 50 CFR , FWS Fed Assistance Program Guidance Rules: 4(f) may or may not apply to these lands depending on their park, recreation, or refuge purposes Compliance with 4(f) does not relieve FHWA and WisDOT of separate compliance with the other laws Documentation developed for 4(f) compliance may aid demonstration of compliance with other laws BackgroundApplicabilityResourcesUseParks etc.ProcessReference

4(f) Process: Agency Roles FHWA Makes final determinations on 4(f) eligibility and impacts Coordinates full 4(f) reviews with legal counsel and US Dept of Interior Provides final review and approval of 4(f) evaluations WisDOT Identifies potential 4(f) resources and project impacts on resources Coordinates with other stakeholders on potential resources and impacts Prepares 4(f) documentation for review and approval by FHWA WDNR Assists WisDOT and FHWA in the identification of potential 4(f) resources Provides information on resource purpose, activities, and management When DNR owns land, acts as the official with jurisdiction for significance, de minimis, and programmatic determinations BackgroundApplicabilityResourcesUseParks etc.ProcessReference

Project Development Process BackgroundApplicabilityResourcesUseParks etc.ProcessReference Planning Project Notification Investigation/ Determination Environmental Baseline studies NEPA Document/ Approval Initial DNR Project Concurrence Design Permitting Review and Comment on Design Elements Final DNR project concurrence Construction Project Implementation Site inspections Operations and Maintenance

NEPA, 4(f), and 6(f) Process BackgroundApplicabilityResourcesUseParks etc.ProcessReference Investigation/ Determination NEPA Process4(f) Milestones6(f) Milestones 1. Baseline StudiesIdentification of Resources and Impacts 2. Draft Environmental Document (CE, EA, DEIS) Draft 4(f) Document 3. Public and Agency ReviewPublic/ Agency Comments on 4(f) Public/ Agency Comments on 6(f) 4. Final Environmental Document/ Approval (CE, FONSI, FEIS/ROD) Final 4(f) Document & FHWA Approval 6(f) Acceptability (DNR) Design (5.) Final Design, Permitting, & Mitigation 6(f) Approval

Reference Resources FHWA 4(f) Website – BackgroundApplicabilityResourcesUseParks etc.ProcessReference

Review 1.What are the general applicability rules for 4(f)? (1) FHWA approval, (2) Transportation project, (3) Use of land from 4(f) resource, (4) Exceptions 2.What are the 3 types of property that 4(f) protects? (1) Parks, Rec Areas, (2) Refuges, (3) Historic Sites 3.What are the 3 kinds of use under 4(f)? (1) Permanent Incorporation, (2) Temporary Occupancy, (3) Constructive 4.What are the 3 ways to document a 4(f) use? (1) Full, (2) De Minimis, (3) Programmatic 5.What are the 4(f) roles of WisDOT, WDNR, and FHWA? Resource Identification, Coordination, Documentation, Official With Jurisdiction, Review and Approval