Everglades Restoration: Federal Funding and
Implementation Progress

Charles V. Stern
Specialist in Natural Resources Policy
February 26, 2013
Congressional Research Service
7-5700
www.crs.gov
R42007
CRS Report for Congress
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epared for Members and Committees of Congress

Everglades Restoration: Federal Funding and Implementation Progress

Summary
The Everglades is a unique network of subtropical wetlands in South Florida that is
approximately half of its historical size, due in part to degradation from federal water projects. In
2000, Congress authorized a 30-year plan, termed the Comprehensive Everglades Restoration
Plan (CERP), for the restoration of the Everglades ecosystem in southern Florida. When
originally authorized, it was estimated that CERP would cost a total of $8.2 billion and take
approximately 30 years to complete. More recent estimates indicate that the plan would take
approximately 50 years to implement, and would cost $13.5 billion.
Under CERP, the federal government (through the U.S. Army Corps of Engineers and the
Department of the Interior) is required to fund half of the costs for restoration, with an array of
state, tribal, and local agencies paying the other half. In addition to activities under CERP, a
number of other federal and state efforts that pre-date CERP (known collectively as “non-CERP”
or “Foundation” activities) also contribute to Everglades restoration. While non-CERP efforts are
technically not included in CERP, the two sets of activities are widely viewed as complementary.
Since passage of CERP in 2000, the federal investment in the Everglades has increased. As of the
end of FY2012, the federal government had provided $1 billion in funding for CERP, with the
state providing matching funds for CERP projects, as well as advanced funding for land
acquisition and construction for expected future CERP projects. Federal funding for non-CERP
activities (most of which pre-date CERP) has also continued over this time period. These efforts
are estimated to total more than $3 billion as of 2011. While estimates of nonfederal (i.e., state)
funding contributions to CERP and related restoration efforts vary widely depending on what
methodology is employed, most agree that, to date, the State of Florida has spent significantly
more on Everglades restoration than has the federal government.
Progress has been made on a number of Everglades restoration projects, although overall progress
to date has fallen short of initial goals. As of 2012, the majority of the land necessary for
restoration projects under CERP had been acquired, and significant progress has been made on
non-CERP activities (including improved water deliveries to Everglades National Park).
Construction has also been initiated on four CERP projects, and studies have been completed or
are underway for a number of other CERP projects. Despite this progress, some projects have
seen setbacks in the form of schedule delays and cost escalations. Additionally, new or revised
authorizations will be required for many projects to go forward. These impediments may have the
effect of further delaying restoration efforts.
Reductions to state funding and the lack of new Everglades CERP authorizations in the Water
Resources Development Act have increased attention to the congressional role in Everglades
restoration. Debate and resolution of these issues has implications, both for ecosystem restoration
in the Everglades and for large-scale restoration initiatives elsewhere.
This report provides information on federal appropriations for Everglades restoration and
provides a brief summary of accomplishments and potential challenges for Everglades
restoration.

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Everglades Restoration: Federal Funding and Implementation Progress

Contents
Introduction ...................................................................................................................................... 1
Everglades Projects: CERP and Non-CERP .................................................................................... 1
Funding for Everglades Restoration ................................................................................................ 2
DOI Funding .............................................................................................................................. 3
U.S. Army Corps of Engineers Funding .................................................................................... 4
Funding Trends .......................................................................................................................... 4
Comparing Federal and State Funding ...................................................................................... 5
Implementation Progress/Challenges .............................................................................................. 6
Accomplishments ...................................................................................................................... 7
Selected Non-CERP Accomplishments ..................................................................................... 7
Challenges ................................................................................................................................. 7

Figures
Figure 1. Estimated Federal Everglades Restoration Expenditures ................................................. 5

Tables
Table 1. Corps and DOI Funding for Everglades Restoration ......................................................... 3

Contacts
Author Contact Information............................................................................................................. 8

Congressional Research Service

Everglades Restoration: Federal Funding and Implementation Progress

Introduction
The Florida Everglades is a unique network of subtropical wetlands that is now half its historical
size. The federal government has had a long history of involvement in the Everglades, beginning
in the 1940s with the U.S. Army Corps of Engineers (hereinafter referred to as the Corps)
constructing flood control projects that shunted water away from the Everglades to make way for
agricultural and urban development. Additional factors, including nonfederal development efforts,
have contributed to the shrinking and altering of the Everglades ecosystem.
In recognition of the unique ecosystem services provided by the Everglades, federal and state
agencies began ecosystem restoration activities in the Everglades in the early 1990s. However, it
was not until 2000 that federal and state restoration activities were coordinated under an
integrated plan. In the Water Resources Development Act of 2000 (WRDA 2000, P.L. 106-541),
Congress approved the Comprehensive Everglades Restoration Plan (CERP) as a framework for
Everglades restoration and authorized an initial round of projects by the Corps and the
Department of the Interior (DOI). According to the process, additional Everglades projects are to
be presented to Congress for authorization as their planning is completed. In WRDA 2007 (P.L.
110-114), four additional projects were authorized. As of early 2013, four other projects had
feasibility studies completed but were not yet authorized.
To date, some progress has been made on Everglades restoration, but much more time and
funding will be required to complete restoration as currently contemplated. Previously, some have
highlighted the overall slow pace of restoration as an argument for expedited support. Conversely,
others have argued that restoration activities in the Everglades already receive too much funding
relative to other priorities, and that the support provided for these activities is not appropriate
given larger fiscal concerns.
Stakeholders involved with planning other large-scale restoration initiatives look to the
Everglades as a model and a test case. Some believe the types of activities funded and the level of
funding for the Everglades may set a precedent for other restoration initiatives, and should thus be
a priority. Others assert that Everglades restoration efforts have been disproportionately favored
relative to similar projects, and should be subject to the same cost-cutting efforts as other areas of
the budget.
This report summarizes historical and current funding for Everglades restoration, with a focus on
federal funding and recent issues facing Congress. It also summarizes some of the major
accomplishments in Everglades restoration since the enactment of CERP in 2000, as well as
ongoing challenges.
Everglades Projects: CERP and Non-CERP
Federal CERP funding was first authorized in WRDA 2000, with a focus on increasing storage of
excess water in the rainy season to provide more water during the dry season for the ecosystem
and for urban and agricultural users. It is estimated that CERP will take more than 50 years and
$13.5 billion to complete.1 The federal government is expected to pay half of CERP’s costs, and

1 This figure represents the estimated cost to the federal government in October 2009 dollars according to the Corps.
(continued...)
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Everglades Restoration: Federal Funding and Implementation Progress

an array of state, tribal, and local agencies (i.e., nonfederal sponsors) will pay the other half. This
same cost share is expected to apply to all project operation and maintenance costs.
WRDA 2000 authorized initial projects, established federal/nonfederal cost-sharing ratios for
Everglades restoration, and created a process for additional projects to be authorized as part of the
CERP framework. WRDA 2007 authorized an additional three CERP projects. Four other projects
have completed the study phase and are ready for construction authorization. The status of these
projects is discussed later in this report.
Federal Everglades restoration activities not authorized under CERP are often referred to as “non-
CERP” or “Foundation” activities. Depending on how broadly this category is defined, it can
encompass a wide variety of Everglades restoration activities undertaken by multiple agencies.2
Most (but not all) of the authorities for this funding predate the enactment of CERP in 2000.
However, similar to CERP funding, most funding for non-CERP Everglades restoration is
provided to the Department of the Interior and the Corps of Engineers. Thus, the Corps and DOI
are often the focal point for funding debates surrounding the Everglades.
Funding for Everglades Restoration
Federal funding for Everglades restoration is largely provided through DOI and the Corps, and is
concentrated in two appropriations bills—the Interior and Environment appropriations bill (which
provides funds to DOI) and the Energy and Water Development appropriations bill (which
provides funds to the Corps). Additionally, some funding in other appropriations bills is
sometimes noted as contributing to Everglades restoration, but is not formally tracked under the
Administration’s non-CERP totals.3
Appropriations laws and conference reports typically do not specify appropriations levels for
most Everglades restoration activities. Rather, the Administration’s budget request identifies
restoration funding totals for the Administration’s request and for the previous fiscal year.4 Actual
expenditure information for previous appropriations is tracked by the South Florida Ecosystem
Restoration Task Force. A summary of funding for both CERP and non-CERP activities within
DOI and the Corps is provided below in Table 1.

(...continued)
See U.S. Army Corps of Engineers, Comprehensive Everglades Restoration Plan, 2010 Report to Congress. Available
at http://www.sfrestore.org/documents/index.html. Hereinafter 2010 CERP Report to Congress.
2 In addition to the Corps and DOI, the South Florida Ecosystem Restoration Task Force also tracks funds that are
provided to the National Oceanic and Atmospheric Administration, the U.S. Environmental Protection Agency, and the
U.S. Department of Agriculture. However, in its annual budget request, the Administration typically only tracks “non-
CERP” funding for the Corps and DOI.
3 As previously noted, some funds not discussed in this report are tracked under the “non-CERP” heading because of
their contribution to Everglades restoration. This includes funds for the Environmental Protection Agency (also in the
Interior and Environment appropriations bill), the National Oceanic and Atmospheric Administration (Commerce,
Justice, and State, the Judiciary, and Related Agencies appropriations bill), and the U.S. Department of Agriculture
(U.S. Department of Agriculture and Related Agencies appropriations). For additional information, see crosscut budget
documents available at http://www.sfrestore.org/documents/index.html.
4 Thus, these totals often lag behind final enacted appropriations.
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Everglades Restoration: Federal Funding and Implementation Progress

DOI Funding
Funding within the Interior and Environment bill is allotted to four agencies within DOI: the
National Park Service (NPS), the Fish and Wildlife Service (FWS), the U.S. Geological Survey
(USGS), and the Bureau of Indian Affairs (BIA). Within these agencies, two types of Everglades
funding are often highlighted: funding for CERP and funding for the Modified Waters Delivery
Project for Everglades National Park (also known as “Mod Waters”). 5 Funding for CERP is
typically provided to NPS and FWS, while funding for the Modified Waters deliveries project is
provided to NPS. Although Mod Waters is technically a non-CERP project, it is widely
considered to be a keystone project for Everglades restoration, including CERP. DOI funding
totals for FY2006-FY2013 are shown in Table 1.
The FY2013 Administration request for Everglades funding included $71 million in DOI funding
for Everglades restoration, including an increase of approximately $8 million for the Modified
Waters Delivery Project. This funding has been provided directly to the Department of the
Interior since FY2009.6
Table 1. Corps and DOI Funding for Everglades Restoration
(thousands of dol ars)
FY2013

FY2007 FY2008 FY2009 ARRA FY2010 FY2011 FY2012
Proposed
DOI
75,152 87,355 128,862 23,264 79,424 70,600 99,831 70,748
CERP
8,481
8,383
9,459
-
8,449
8,401
8,347
8,392
Non-CERP
66,671
78,972
119,403
23,264
70,975
62,199
91,484
62,356
[DOI Mod
[13,330]
[14,299]
[60.000]
[21,052]
[8,400]
[8,000]
[7,987]
[8,000]
Waters]
Corps
157,553 112,694 115,712 95,412 167,364 131,066 142,486 153,000
CERP
64,000
64,000
83,640
87,896
119,966
79,860
57,886
91,000
Non-CERP
93,553
48,694
32,072
7,516
47,398
41,108
84,600
62,000
[Mod Waters]
[35,000]
[9,840]
-
-
-
-
-
-
Total
232,705 200,049 244,574 118,676 246,788 201,666 242,317 223,748
Source: Congressional Budget Justifications for the U.S. Department of the Interior and Army Corps of
Engineers, FY2006-FY2013.
Notes: DOI funding includes funding for the National Park Service, the Fish and Wildlife Service, the U.S.
Geological Survey, and the Bureau of Indian Affairs. “ARRA” represents funding under the American Recovery
and Reinvestment Act (P.L. 110-5). Mod Waters totals represent a subset of non-CERP funding.

5 The Modified Waters Deliveries Project is an ecosystem restoration project in south Florida designed to improve
water delivery to Everglades National Park.
6 Prior to FY2009, this funding was provided both to the Corps and to DOI.
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Everglades Restoration: Federal Funding and Implementation Progress

U.S. Army Corps of Engineers Funding
Funding for Corps Everglades restoration projects in the Energy and Water Development bill is
listed under project-level headings in the Corps Construction account. Currently, these projects
include the Central and Southern Florida Project, Kissimmee River Restoration, and Everglades
and South Florida Restoration. Historically, funding was also included for two other areas,
Florida Keys Water Quality Improvement and the Modified Waters Deliveries Project.7 Corps
funding is directed toward planning and construction of projects authorized under CERP and
other authorities. Within Corps totals, funding for CERP is considered a key benchmark for
Everglades restoration commitment and progress. Table 1 shows funding totals for the Corps in
recent fiscal years and the FY2012 President’s request.
Funding Trends
Federal funding totals for restoration activities in the Everglades ecosystem have been collected
since the early 1990s. Overall, since FY1993, the federal investment in Everglades restoration is
estimated to have exceeded $4 billion, and has increased in recent years. From FY1993 through
FY2000, federal appropriations for Everglades restoration activities totaled more than $1.2
billion. More recently, from the enactment of CERP in FY2000 through FY2012, total federal
funding exceeded $3.1 billion, with more than $900 million of that total going to federal CERP
projects. Overall, average federal funding since the enactment of CERP has increased, from
approximately $159 million per year before enactment of CERP to $259 million per year since
CERP was enacted.8 Figure 1 shows all Everglades funding since 2001, breaking these totals
down between CERP and non-CERP funding.

7 As noted above, in recent years Mod Waters funding has been provided solely to DOI. Florida Keys Water Quality
Improvement was completed in FY2009.
8 CRS analysis of departmental data for FY1993-FY2011. These totals are for Corps and DOI restoration work only.
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Everglades Restoration: Federal Funding and Implementation Progress

Figure 1. Estimated Federal Everglades Restoration Expenditures
400
350
300
s) 250
n
o
illi
m
-
$
200
Federal Non-CERP
g (
in
d
n

Federal CERP
Fu 150
100
50
0
Fiscal Year

Source: Estimated Federal CERP Expenditures.
Notes: FY2010 includes additional funding under P.L. 111-5 (ARRA). Some totals for non-CERP funding may not
match with previous totals due to inconsistencies in reported funding levels between the President’s budget and
the crosscut budget documents.
Comparing Federal and State Funding
Exact comparisons between federal and state funding levels are complicated for a number of
reasons. As previously noted, CERP funding is to be cost-shared equally between the federal
government and nonfederal entities in the state of Florida. Many view the status and amount of
federal CERP funding relative to nonfederal funding for this initiative as an important indicator of
the federal government’s commitment to Everglades restoration. While the state has invested
considerable funding in CERP, much of this funding is for land acquisition related to the expected
“footprints” of future CERP projects. Thus, exact comparisons between federal and state funding
levels are complicated.
Nonfederal CERP expenditures are ostensibly tracked in several reports, including a crosscut
budget report prepared annually by the South Florida Ecosystem Restoration Task Force.
However, this funding is not formally “credited” by the Corps toward CERP project cost shares
until a number of requirements have been met. These requirements include completion of a
project implementation report (PIR) and authorization for construction of the project by
Congress, as well as signing of a project partnership agreement, or PPA. Thus, although some
may reference large nonfederal contributions toward CERP, the proportion of these expenditures
that have been formally credited toward CERP is actually much smaller. Indeed, it is possible
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Everglades Restoration: Federal Funding and Implementation Progress

that, depending on subsequent actions of the Corps and Congress, some of the aforementioned
funds will never be credited under CERP.
The magnitude of the difference between initial state expenditures and the amounts actually
credited under CERP results in a wide range of reported state funding levels for CERP. For
instance, the State of Florida’s annual crosscut budget previously estimated that from 2001 to
2011, it spent approximately $3 billion for its CERP costs. However, actual credited expenditures
from federal and state entities have been noted by the Corps to be roughly even to date, and a
2012 National Research Council (NRC) review noted that all state expenditures for authorized
CERP projects (i.e., projects authorized in WRDA 2000 and WRDA 2007) only exceeded federal
expenditures by $270 million as of 2011.9
In its 2012 report to Congress, the NRC estimated that another $584 million in state expenditures
would be available for crediting if the next “round” of CERP authorized projects is authorized.
The total amount expended by the State of Florida that may be credited to all future CERP
projects ranges widely, depending on which assumptions are used.10 Future legislative actions,
including project authorizations, would be an important factor in determining the exact amount
eligible for cost shares. (For more information, see “Challenges”, below.)
Implementation Progress/Challenges
Congress has mandated several major reports that include detailed evaluations of Everglades
restoration. NRC reviews of Everglades restoration are published biennially and a report was
most recently published in 2012; CERP reports to Congress are published every five years and a
report was most recently completed in 2010.11 Both reports outline accomplishments and
challenges related to CERP and non-CERP projects.
Since passage of CERP in 2000, progress has been made on Everglades restoration for both
CERP and non-CERP projects, including construction of pilot projects and initiation of several
other construction projects. As discussed below, some of the non-CERP “Foundation” projects are
nearing completion. Additionally, in recent years many have noted an increase in momentum for
Everglades restoration as several projects moved from the planning to construction phase. Most
of these projects have seen increases in federal appropriations. In addition to progress on
construction, baseline information and processes have also been established, the scientific
understanding of many of the uncertainties associated with Everglades restoration has improved,
and a programmatic structure is in place to facilitate future projects. Selected CERP and non-
CERP accomplishments as of 2013 are noted below.

9 Committee on Independent Scientific Review of Everglades Restoration, National Research Council, Progress
Toward Restoring the Everglades: The Fourth Biennial
, Washington, DC, 2012, http://www.nap.edu/catalog.php?
record_id=13422. Hereafter Fourth Biennial Review.
10 A number of potential CERP projects benefited from land purchases by the State of Florida but have yet to receive a
Chief’s Report or be authorized by Congress. Correspondence with Steve Kopecky, Corps, May 11, 2011.
11 See footnotes 1 and 9.
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Accomplishments12
• Purchase of more than 60% of total land required under CERP.
• Design and installation of four CERP pilot projects authorized in WRDA 2000.
• Initiation of construction on the Picayune Strand restoration project (authorized
in WRDA 2007), which is expected to restore 55,000 acres of wetlands. The first
phase of this project is expected to be complete in 2013.
• Initiation of construction on the Site 1 Impoundment Project (authorized in
WRDA 2007), which is expected to provide for 13,280 acre-feet of water storage
and prevent saltwater intrusion. The first phase of this project is expected to be
completed in 2013.
• Initiation of construction for the C-44 Reservoir and Stormwater Treatment Area
(STA) component of the Indian River Lagoon-South Project (authorized in
WRDA 2007), which is expected to store approximately 50,000 acre-feet of
stormwater. This project is expected to be completed in 2018.
• Completion of PIRs by the Corps for four projects: the C-111 Spreader Canal;
Biscayne Bay Coastal Wetlands; C-43 West Basin Storage Reservoir, and
Broward County water preserve areas.
• Initiation of expedited construction by the State of Florida on four projects:
Loxahatchee River Watershed, Lakeside Ranch STA, C-111 Spreader Canal, and
Biscayne Bay Coastal Wetlands.
Selected Non-CERP Accomplishments
• Initiation of construction of the 1-mile bridge component of the Mod Waters
Project, which is expected to improve water deliveries to Everglades National
Park. This project is expected to be completed in 2013.
• Completion of three of four phases of the Kissimmee River Restoration Project,
which is expected to reconnect the river with its historical flood plain and better
restore more natural flows.
Challenges
Outside reviewers, including the NRC, have noted the relatively slow pace of Everglades
restoration compared to the ambitious timetables laid out in original program documents.13 These
observers have acknowledged that while there has been some progress in the Everglades,
implementation of actual restoration projects receiving federal and state funds has been
considerably slower than expected. At the same time, estimated costs for Everglades restoration
have gone up significantly. While CERP was originally estimated to cost a total of $8.2 billion
(2000 dollars) in funding over 30 years, more recent estimates indicate that CERP will cost $13.5

12 Accomplishments noted are as of 2013.
13 See for example, Committee on Independent Scientific Review of Everglades Restoration, National Research
Council, Progress Toward Restoring the Everglades: The Third Biennial Review, Washington, DC, 2010, pp 64-68,
https://download.nap.edu/catalog.php?record_id=12988. Hereinafter referred to as the Third Biennial Review.
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billion (2009 dollars), and have extended the expected timeline for implementation to 50 years.14
Stated reasons for these cost and schedule changes include inflation, changes to project design,
and funding streams that were less than originally expected.
As of 2013, no major CERP project receiving federal funds had been completed, and the majority
of projects described in earlier plans had yet to be initiated. Many of the projects envisioned in
earlier program documents are either unauthorized, or else require amendments to their original
authorization to proceed further.15 As of 2013, 10 of the 45 project implementation reports
expected under CERP had been finalized or completed in draft form. Of these 10 projects, only
four have been authorized by Congress and have had construction initiated. In several cases,
CERP projects have yet to be authorized by Congress, but nonfederal construction work has
begun.
Another challenge going forward for Everglades restoration may be the status of potential new
project authorizations under the Water Resources Development Act (WRDA). Originally, CERP
envisioned regular enactment of WRDAs and associated inclusion of CERP projects as they were
studied and recommended to Congress. However, since 2000, one WRDA has been enacted
(2007). Absent new authorizations, there is no clear way for federal work on Everglades
restoration to proceed, and construction may slow considerably from its current pace as existing
projects wind down and the Corps is not able to match prior state expenditures for unauthorized
projects. Such a scenario would likely delay CERP further relative to the current expected
timeline.
Other challenges to Everglades restoration have been noted by outside reviewers and others.
These challenges include ongoing issues associated with water quality in the Everglades and
south Florida, the adequacy of some restoration efforts in recreating historical hydrologic
conditions, and ongoing degradation of species and ecosystems in south Florida, which has in
some cases accelerated in recent years.

Author Contact Information

Charles V. Stern

Specialist in Natural Resources Policy
cstern@crs.loc.gov, 7-7786



14 According to the Corps, the increased cost estimates since 2000 are attributed to (1) $3.63 billion in inflation
adjustments; and (2) $1.63 billion in price /scope changes.
15 While WRDA 2000 conditionally authorized 10 projects, these projects will reportedly need to have their
authorizations amended due to substantive changes in project scope.
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