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Early planning and timely organizing will help your study get off to a successful start. A core group of the proponents that engaged communities and garnered support to pass your river Study Bill (see activities under the “Explore” section, if you’re not there yet!) usually are the key local organizers at the beginning of the Study phase. This core group will work closely with NPS and local communities in the interim period between Congressional approval for the study and formation of the local Study Committee.

Some key aspects to consider or plan for when undertaking your study are noted in the sections below.

Study Committee Formation

PWSR study committees (or study teams) typically include appointed members from the jurisdictions through which the study river flows and/or jurisdictions identified in the study legislation and can include tribal, municipal, regional, county, and state interests. Often study committees will have advisors or associate members as a way to include and engage additional interests and expertise from agencies, community groups, academia, private sector, and nonprofits.

The interim group will need to make presentations or conduct meetings with town governments to describe the river study and solicit candidates for the Study Committee. Town governments may want help from the interim planning group to identify candidates or to develop an application and selection process to aid in making appointments to the committee. There is likely to be some carryover of individuals that were previously involved in the Study Bill process, and there is a benefit to including those with knowledge of the history of the initiative. However, it’s possible that most appointees to your study committee will be “new” to the process.

Staff

Study committees typically have staff to coordinate and manage various aspects of the study. Staff tasks and responsibilities can vary based on the focus of the river study and involvement and expertise of the study committee members but generally include providing support and facilitation for meetings, subcommittee coordination, public outreach, event coordination, project management, partner engagement, study documentation, report writing, and overall development of the river management plan. Staff may be existing employees of the organization serving as fiscal agent/coordinator of the study or may be hired into a contract position. Some groups may hire multiple staff for different aspects of study implementation or contract for special services as needed (e.g., website development, GIS mapping, report design, etc.). In some cases, the NPS has hired a Study Coordinator directly when no fiscal agent has been willing or able to take on this responsibility.

Operating Procedures

The Study Committee will need to decide its operating procedures and structure very early in its establishment. This can be achieved through establishing bylaws, though often bylaws are not developed and adopted until after a river is designated, and the Study Committee has less formal operating procedures – but ones that are still agreed to and documented in the minutes. The interim committee may want to provide some preliminary guidance for consideration by the newly formed Study Committee.

Committee member roles and terms, officers, meeting frequency and formats, decision-making procedures, voting rules, subcommittee establishment and operations, and budget reporting should all be agreed upon and documented. The Study Committee likely is required (and, if not, should strive) to adhere to municipal public meeting notice and public participation requirements.

Recent PWSR Study Committees have formed subcommittees to focus on different aspects of the overall study. The Nashua and York PWSR studies each had two subcommittees: one to address outreach, communications, and public engagement; and one to focus on identifying “outstandingly remarkable values” and associated resource management issues. Similarly, the Wood-Pawcatuck had an Outreach Subcommittee, but instead of one ORV Subcommittee, it had four geographic-based subcommittees that focused on the subset of rivers in its sub-area and were tasked to, “research their local community information about ORV related information, develop a proposed classification for each segment in their sub-basin, and get a start on [identifying] known issues or opportunities to include in the management plan.”

Equity and Inclusion

Creating an inclusive PWSR study process can lead to a more robust and thorough study of your river and communities. Aim to structure your study so that everyone has the opportunity to learn about the study, contribute perspectives and ideas, and participate. As the study committee is being formed and plans for the study are being developed, it’s a good time to find ways to involve more groups and individuals, particularly those who may be systematically underserved or underrepresented in community planning and natural resources management. NPS is working to improve equity and inclusion in all of its programs and processes, and it welcomes feedback on strategies, successes, and innovation. Below are some suggestions to improve equity and inclusion for PWSR studies.

• Articulate a commitment to equity and inclusion at the start of your study process and invite others to help the study be representative and inclusive.
• Establish subcommittees and advisory groups that include participants that are not study committee members to involve more people and get greater input in the overall study.
• Aim to structure meetings, events, and projects in ways that allow for meaningful participation and input by all, being sure to consider physical and socio-economic accessibility. Creating different opportunities for people to provide input is important – having public engagement activities that span a variety of venues, formats, methods, and times should help facilitate greater participation.
• Meeting environments go a long way towards success in engagement. During meetings, ensure that everyone has equal opportunity to speak and mitigate any unconstructive behaviors as early as possible. Encourage dialogue, welcome questioning, and create an atmosphere of transparency.
• Partnering with community entities or civic organizations (e.g., libraries, schools, rotary clubs, senior centers, social service associations, historical societies) to host events or workshops can help engage different community members and extend your promotional efforts.
• Identify issues and reasons that limit river use, access, and awareness – and incorporate strategies and solutions into your discussions and Comprehensive River Management Plan.
• As you document and assess outstanding river values, consider different cultural values and work to document a range of histories on the land including indigenous histories.

River Network provides tools, training, and resources to promote equity, diversity, and inclusion in river protection efforts. River Network maintains a comprehensive Resource Library, and it developed a two-part toolkit to explore climate resiliency strategies and equitable engagement of communities in climate resilience work that provides insights and strategies relevant for river stewardship efforts.  

• https://www.rivernetwork.org/category/equity-diversity-and-inclusion/
• https://www.rivernetwork.org/inclusive-river-recreation-outreach-strategies/ (includes link to a webinar featuring Citizens United for Maurice River, a PWSR)
• https://www.rivernetwork.org/resource/equity-diversity-inclusion-resources/
• Tools for Equitable Climate Resilience – Fostering Community-led Research and Knowledge
• Tools for Equitable Climate Resilience – Fostering Community Leadership

Outreach

An early focus on outreach can aid your study’s longer-term public engagement efforts. It’s helpful to have a website to direct people to basic information about the study, upcoming events, and how to be involved. A stand-alone website (i.e., a new, unique domain name with content solely for the purposes of the study) is ideal for a PWSR study, but sub-pages on an organization’s existing site can also work for the short term, as long as there’s a clear separation of the river study and other work undertaken by the organization. You’ll want to choose a domain name and format that will work for the study and also could be used post-designation. Websites from recent PWSR studies:

• https://www.wildandscenicnashuarivers.org/ - Nashua, Squannacook, and Nissitissit Rivers Wild and Scenic Stewardship Council. This website was developed and launched mid-way through the study phase. With the rivers achieving designation in 2019, the site (as of 2022) remains a combination of study phase information/history and designation implementation information.
• https://wpwildrivers.org/ - Wood-Pawcatuck Wild and Scenic Rivers. This website was launched about a year into the study. When the rivers were designated in 2019, the site morphed from study phase to implementation phase. The “study” information was condensed into one sub-page on the current site: https://wpwildrivers.org/history-what-it-took-to-earn-designation/
• http://www.yorkrivermaine.org/ - York River Wild and Scenic Study. This website was developed and launched soon after the study coordinator was hired at the beginning of the study. When the river is designated, the website content will transition to support designation implementation.  

As a study progresses, the website can be the repository for study documents, committee meeting announcements and minutes, presentations / outreach materials, maps, and various background reports on river resources. Having a way for people to “sign up” on the website to receive future study announcements or updates by email is a good way to build your contact list. Your website can also direct viewers to any social media accounts for your study. Use of social media (YouTube, Twitter, Facebook, Instagram, blogs, etc.) to support your study will likely depend on your committee’s or staff’s knowledge of various platforms and its capacity to sustain a social media presence.

The level and details of “branding” a river study have varied. More extensive branding (including development of a study-specific logo) can be helpful if the PWSR Study is one of several initiatives your river or watershed association is currently undertaking – to clearly identify and differentiate the PWSR study from other river projects and activities. Branding considerations can be as simple as using consistent font, style, and color choices for study-specific letterhead, reports/documents, and outreach materials (presentations, banners, flyers, posters, etc.).   

Logos from recent PWSR studies (in both cases, an existing watershed organization with long-term river management and community engagement initiatives was the fiscal agent, lead organizer, and employer of staff for the study; a logo was not developed for the York River PWSR study):

As you develop web pages, outreach materials, social media content, and presentations, aim to make them “508 compliant” to maximize accessibility and usability for all, including individuals with disabilities. The U.S. General Services Administration’s Office of Government-wide Policy provides extensive guidance and technical assistance to improve accessibility: https://www.section508.gov/.

Common Questions and Concerns

Now’s a good time to review the questions and concerns about river designation that you heard when you were working to gain support for your river’s Study Bill. It’s likely that the same issues will be raised again now that the study is underway, and you’ll want to be able to respond. Common issues and questions from recent PWSR studies that you’ll likely encounter, if you haven’t already, could include:

• How will the federal government (NPS) manage the river if designated?
• Will private property rights be affected?
• Are there new laws and regulations that govern the use of designated rivers?
• Will national designation bring more tourists and lead to river overuse or resource degradation?
• What is Section 7 review?
• How is our existing [dam, drinking water reservoir, altered shoreline, dredging plan, level of development, etc.] compatible with the program’s “wild and scenic” status and “free-flowing” river conditions?

Your Study Committee will want to review these types of questions and develop fact sheets or other outreach materials that fit your needs.

It’s important that your Study Committee provides ample opportunities for citizens to ask questions and share concerns about the study, river resources, and river designation. Your study will be strengthened by listening to and incorporating public input into your overall study process. Issues/concerns can be vetted and researched by your committee and be factored into its assessment of designation suitability. The Comprehensive River Management Plan you develop can document concerns, findings, existing conditions, and any solutions or management recommendations.

Mistrust of Federal Government

Fear of federal government “overreach,” interference with local river and land use management, and concerns about private property rights tend to dominate worries about designation. In some more extreme cases, misinformation about the program and/or federal river management examples taken from non-PWSRs can create confusion – which means your committee will need to be prepared to provide objective, clear and consistent information about PWSR designation.

PWSR designation does not result in federal government management of local river systems, changes to property rights, or changes to local ordinances and regulations. Locally-led river stewardship efforts are bolstered with the funding, technical assistance, collaboration, and community engagement that result from PWSR designation. The reality of what PWSR administration and implementation means is probably best demonstrated by the existing PWSRs (as of mid-2022, there were 16 PWSRs involving 140+ different towns). In all these cases, PWSR designation provides additional support for local river stewardship efforts without federal “takeover” of private property and river management or interference with local governance.

Furthermore, designation legislation for PWSRs codifies the role of the National Park Service and the principles of local governance. Each time Congress adds a new river to the National Wild and Scenic Rivers System, the Wild and Scenic Rivers Act is amended. Specific language written into the Act for each PWSR designation upholds the PWSR principles of local control, no federal takeover or management of private property, and river management that is consistent with the local Comprehensive River Management Plan. See a SUMMARY TABLE noting how and where “partnership” principles for recent and proposed PWSR designations are introduced in House Bill language and codified in Public Law.

Here are examples of text excerpts and information contained in various communications to describe the federal agency’s role with management of designated PWSRs.

Project Review by NPS

Section 7 of the Wild and Scenic Rivers Act directs federal agencies to protect the free-flowing condition and other values of designated rivers and Congressionally authorized study rivers. Section 7 applies to water resources projects with work below the ordinary high water mark that are federally assisted (i.e., those that require a federal permit or use federal funds). Projects subject to Section 7 review can include restoration projects, bridge replacements, highway widening, riverbank stabilization, and other major infrastructure projects – if projects involve work “below ordinary high water” and use federal funds (grants, loans, etc.) or require a federal permit (Army Corps, etc.). Section 7 of the WSR Act applies only to specific federally assisted projects and does not impact local zoning and ordinances, land use of private landowners, state permits, or non-federally assisted river projects, which remain governed by local and state regulations regardless of designation.

Ultimately Section 7 aims to safeguard the free-flowing nature of designated rivers as well as the specific ORVs that serve as the basis for designation from negative impacts of federal projects. Section 7 prevents licensing or exemption by FERC of new dams or hydropower facilities that would impact designated rivers. It prevents or limits federal projects which have a direct and adverse effect on, invade, or unreasonably diminish the free-flowing nature, outstandingly remarkable values, or water quality of the designated rivers. During a PWSR Study, Section 7 protections are applicable, though the review and evaluation criteria are slightly different for study rivers than for designated rivers.

As the federal agency that administers PWSR designations and studies, NPS leads the Section 7 review and issues findings. Local committees (during the study phase or post-designation) can provide input to NPS on projects and river resources as part of the agency’s Section 7 review.

Additional information, implementation guidance, and helpful definitions for terms related to Section 7 are provided in the links below:

• Interagency Wild and Scenic Rivers Coordinating Council’s (IWSRCC’s) Technical Report on Section 7: https://www.rivers.gov/documents/section-7.pdf
• IWSRCC’s Section 7 flowchart: https://www.rivers.gov/documents/section7/section-7-flowchart.pdf
• NPS Reference Manual 46: Wild and Scenic Rivers (includes an extensive chapter on Section 7): https://www.nps.gov/subjects/policy/upload/RM-46_04-12-2021-2.pdf

Other Considerations

Some other topics or factors your Study Committee will want to consider early in your study process might include:

• Watershed versus river focus (not mutually exclusive): will your group’s area of study be more broadly focused on the watershed or more narrowly focused on the rivers being considered for designation? The “right” focus will be unique to your river and group’s interests, but factors such as size of watershed, types/characteristics of your potential ORVs, existence of other river or watershed plans, community and public interest, legislative intent, and watershed land uses could factor into your decisions.
• Geographic versus topic focus (also not mutually exclusive): how will your group organize its data gathering and outreach efforts – focusing on sub-regions or specific types of resources / ORVs? For larger watersheds or study areas that span multiple states, organizing your efforts by geographic sub-regions might be more practical.
• Are there special management issues to consider (e.g., dams, drinking water supplies, public access issues, water quality impairments, conflicts between commercial and recreational users, etc.)? Identifying such issues early on enables you to: (1) engage subject area experts to provide objective data and/or ensure that your committee and subcommittees include various interests and perspectives; (2) incorporate discussion and evaluation of specific issues into your overall study approach; and (3) address relevant management needs in your Comprehensive River Management Plan.
• What are the formats and processes for local votes to endorse PWSR designation and approve the Management Plan? Even though your towns’ legislative bodies will vote at the end of the local study, knowing who will be voting and when will have important implications for your overall timeline and approach. Often for town-wide voting on warrant items on a ballot, there are rigid timelines for mandatory public hearings and ballot language development well in advance of voting days. Votes taken by Selectboards or Councils might have more flexible timing, but not necessarily.

Existing PWSRs

Some of the best advice to assist you in organizing and conducting your study can come from:

• Existing PWSRs
• Your National Park Service (NPS) representative

Research existing PWSRs with characteristics similar to your river: Is yours a coastal river? Do you have significant areas of state-owned lands along your river? Does your watershed span multiple states? Do you anticipate geologic features being one of your prominent ORVs? Is agriculture an important land use in your region? Are there working dams on some of your study rivers?

It’s likely that you can find at least one existing PWSR that had a similar characteristic / setting / issue for each aspect you are taking into consideration for your study. As of 2022, there are 16 designated PWSRs located in the northeastern states and Florida (see the MAP depicting the designated river segments for the 16 PWSRs). Even if a river was designated decades ago and current staff and committee members weren’t involved in the study phase, the original Comprehensive River Management Plan and/or Study Report will likely provide insights into their overall study – how the study was structured, how they engaged various groups, how they documented ORVs and other eligibility criteria, etc.

Talk to your NPS rep! They are a member of your study team and able to provide support and assistance in many ways. Chances are they’ve been directly involved in other PWSR studies, and they know the PWSR network and where to point you for specific assistance.

• NPS web page on PWSRs with links to websites for the 16 individual PWSRs (scroll down to bottom of page for the 16 linked images): https://www.nps.gov/orgs/1912/partnership-wild-and-scenic-rivers.htm
• Table listing NPS contacts for each PWSR and by NPS region: https://www.nps.gov/orgs/1912/partnership-wild-and-scenic-river-contacts.htm
• Interactive NPS National Wild and Scenic River System Story Map that includes all designated rivers (WSRs and PWSRs) – click on river segments for detailed information including ORVs and classifications: https://nps.maps.arcgis.com/apps/MapJournal/index.html?appid=ba6debd907c7431ea765071e9502d5ac#

Topics in the Study Section