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Updated August 30, 2022
Recent Developments in Everglades Restoration
Overview
Several laws subsequent to WRDA 2000 authorized
projects contemplated under CERP. Some projects received
What Is the Everglades? The Everglades is a unique
appropriations and are under construction. Studies for other
network of subtropical wetlands in South Florida. Due in
CERP projects are in progress (see Table 1).
part to U.S. Army Corps of Engineers (USACE) water
supply and flood control projects (as well as agricultural
Table 1. Status of CERP USACE Projects in FY2022
and urban runoff), the ecosystem was degraded and was
approximately half its historical size by the end of the 20th
Construction
century. The ecosystem is home to Everglades National
Project Name
Authorization
Status
Park and unique species, including 67 species listed under
the Endangered Species Act (16 U.S.C. §§1531 et seq.).
Site 1 Impoundment
WRDA 2007
Phase 1 completed
Phase II on hold
What Is CERP? Congress approved the Comprehensive
Picayune Strand
WRDA 2007
Under construction
Everglades Restoration Plan (CERP) in the Water
Resources Development Act of 2000 (WRDA 2000; P.L.
Indian River Lagoon-
WRDA 2007
Under construction
106-541). CERP is a framework under which the federal
South
government, with the State of Florida, is attempting to
C-43 West Storage
WRRDA 2014
Under construction
restore the Everglades and improve the timing, distribution,
Basin
and WRDA 2020
and quality of the water flowing south from Lake
Okeechobee to the Everglades. Under CERP, the federal
C-111 Spreader
WRRDA 2014
Phase 1 completed
government, through USACE and the Department of the
Canal
Phase 2 in planning
Interior (DOI), is to fund half the costs of restoration; the
Broward County
WRRDA 2014
Under construction
State of Florida is to contribute the other half. Several tribal
Water Preserve
and local agencies also are involved in this restoration
Areas
effort. Originally, CERP was to include 60 projects to be
completed over 30 years at a cost of $8.2 billion in 2000
Biscayne Bay Coastal
WRRDA 2014
Under construction
dollars (equivalent to $13.2 billion in 2021 by accounting
Wetlands
for inflation). Subsequent reports to Congress projected
CERP would take approximately 50 years from its
Central Everglades
WRDA 2016 and Under construction
authorization to implement at a total cost of $23.2 billion
Planning Project
WRDA 2020
(in FY2020 dollars) due to inflation, changes in project
Everglades
WRDA 2018 and Under construction
scope and schedule, and new project authorizations. As of
Agricultural Area
WRDA 2020
FY2022, the federal government has provided $3.5 billion
Reservoir Storage
and the State of Florida has spent an estimated $5.3 billion
on CERP in nominal dollars (some of Florida’s funding has
Loxahatchee River
WRDA 2020
Awaiting
not been officially credited toward its cost share).
Watershed Project
construction
Lake Okeechobee
N/A
Study in progress
CERP is expected to cost $23.2 billion (FY2020
Watershed Project
dollars) and take until 2050 to complete.
Western Everglades
N/A
Study in progress
Outside of CERP, USACE has performed complementary
Restoration Project
efforts to restore the Everglades (most of which predate
Biscayne Bay and
N/A
Study in progress
CERP). Construction of a major project, Kissimmee River
Southern Everglades
Restoration, was completed in July 2021 after 22 years. The
federal government has spent over $3.8 billion (nominal
Southern Everglades
N/A
Study in progress
dollars) on these non-CERP projects.
Source: Congressional Research Service based on the 2015-
2020 CERP Report to Congress; USACE factsheets, work plans,
CERP Projects Must Be Authorized by Congress
and spend plans; and enacted legislation.
WRDA 2000 approved CERP and the process for its
Note: CERP = Comprehensive Everglades Restoration Plan. USACE
implementation. The law also authorized several pilot
= U.S. Army Corps of Engineers. WRDA = Water Resources
projects. Subsequent projects require USACE to study and
Development Act. N/A = not applicable. WRDA 2007, WRDA 2016,
produce a project implementation report (PIR) and obtain
WRDA 2018, and WRDA 2020 are P.L. 110-114, Title I of P.L. 114-
congressional authorization before they can receive federal
322, Title I of P.L. 115-270, and Division AA of P.L. 116-260,
appropriations for construction, including credit or
reimbursement for nonfederal work undertaken in advance.
https://crsreports.congress.gov
Recent Developments in Everglades Restoration
respectively. WRRDA 2014 = Water Resources Reform and
Lake Okeechobee/Herbert Hoover Dike. Water storage
Development Act of 2014 (P.L. 113-121).
and discharges from Lake Okeechobee, managed by
USACE, affect the Everglades ecosystem. According to a
Selected USACE Authorizations
regulation schedule, USACE may discharge water at certain
Central Everglades Planning Project. The Central
times and quantities east and west to estuaries and south to
Everglades Planning Project (CEPP) is a CERP project that
the EAA and greater Everglades ecosystem. The Herbert
Congress authorized in WRDA 2016 (Title I of P.L. 114-
Hoover Dike (HH Dike) is an earthen dam that surrounds
322). CEPP prioritizes restoration projects (e.g., CEPP
Lake Okeechobee. Since 2001, USACE has conducted
South, CEPP North, and CEPP New Water) in the central
modification on HH Dike to address structural issues
portion of the Everglades and aims to address issues
associated with the dike. HH Dike repairs are not
associated with the quantity, quality, timing, and
categorized as Everglades restoration, but many
distribution of freshwater flows south of Lake Okeechobee
stakeholders consider them essential to broader restoration
into the central Everglades and Everglades National Park.
efforts in the Everglades ecosystem. HH Dike repairs
Congress initiated construction for CEPP with FY2020
required USACE to alter discharge regulations and
appropriations.
increased discharges from the lake during high-water
events. Higher releases of nutrient-rich water from Lake
Everglades Agricultural Area Reservoir Storage
Okeechobee to canals flowing to the St. Lucie and
Project. WRDA 2018 (Title I of P.L. 115-270) authorized
Caloosahatchee estuaries have contributed to harmful algal
the Everglades Agricultural Area Reservoir Storage Project
blooms and have increased sediment in the estuaries and
(EAA Storage), which nonfederal sponsors proposed as an
surrounding coastlines. According to USACE, following
addendum to CEPP. EAA Storage aims to provide capacity
modification of HH Dike, increased capacity to store water
to store around 350,000 acre-feet of water coming from
in Lake Okeechobee and changes to regulating discharges
Lake Okeechobee and a stormwater treatment area (i.e., a
from the lake could aid in addressing water quality in canals
wetland area that removes excess nutrients to improve
flowing to the estuaries.
water quality).
As of September 2021, USACE anticipated completing dike
WRDA 2020. WRDA 2020 (Division AA of P.L. 116-260)
repairs by the end of 2022. Section 1106 of WRDA 2018
authorized two CERP projects―Loxahatchee River
directed USACE to expedite the update of the Lake
Watershed Restoration Project for construction and
Okeechobee regulation schedule to coincide with
modifications to the Caloosahatchee River West Basin
completion of HH Dike and to consider all relevant aspects
Storage Reservoir. It also authorized two non-CERP
of CERP, including projects not yet constructed (e.g., EAA
activities―Canal 111 South Dade Project and a study at
Storage) in its operating procedures. WRDA 2020 provided
Shingle Creek and Kissimmee River. It combined CEPP
further direction to USACE on water management efforts
and EAA Storage into one project. It authorized USACE to
within Lake Okeechobee and authorized a national harmful
enter into an agreement for a nonfederal sponsor to pursue
algal bloom demonstration program with the lake as a focus
construction of one CERP project on its own.
area (FY2022 appropriations provided the first funding for
the program). USACE expects to finalize new discharge
Congressional Interest
regulations for the Lake Okeechobee System Operating
Appropriations. Following project authorization, the
Manual (LOSOM) by January 2023 to account for the
timing and level of federal and nonfederal funding affect
completed HH dike construction. In August 2021, USACE
project implementation and completion. In FY2022 annual
announced a preferred alternative for the new schedule. In
appropriations, Congress provided USACE with $350.6
July 2022, USACE released a draft environmental impact
million for CERP and $2.0 million for non-CERP
statement for LOSOM identifying a preferred alternative,
Everglades study and construction activities. FY2022
with public comments due in mid-September 2022.
annual appropriations also included $9.0 million for
USACE operation and maintenance (O&M) activities in the
WRDA 2022. In 2022, the House and Senate passed
Everglades. In FY2022, USACE also allocated $1.1 billion
different versions of WRDA 2022 (H.R. 7776). The House-
to Everglades restoration activities out of the $1.9 billion
passed version would authorize a comprehensive plan for
that the Infrastructure Investment and Jobs Act (IIJA; P.L.
restoring, preserving, and protecting the Everglade’s
117-58) provided for USACE aquatic ecosystem restoration
northern estuaries. Both chambers’ versions would
construction. For FY2023, the Administration’s USACE
authorize a study for resiliency improvements to existing
budget request included $405.4 million for CERP, $14.3
projects in central and southern Florida. These provisions
million for non-CERP Everglades study and construction
include limitations on how these activities may impact
activities, and $10.7 million for Everglades O&M activities.
CERP progress. The House-passed version also would
require an update on CERP, LOSOM, and other Everglades
DOI implements CERP, conducts science to support
activities to be sent to the authorizing committees. Both
restoration, and manages and restores wildlife habitat in the
chambers’ versions would require future accounting
ecosystem. In FY2022, Congress provided $8.2 million and
updates to CERP nonfederal sponsors and alter how CERP
$56.0 million for DOI CERP and non-CERP Everglades
nonfederal cash contributions are calculated and their
activities, respectively. The Administration’s DOI FY2023
payment timeline (provisions in the two versions vary). The
budget request included $8.3 million for CERP and $60.6
Senate version also would increase the authorization of
million for non-CERP Everglades activities.
appropriations amount for the Indian River Lagoon project.
https://crsreports.congress.gov
Recent Developments in Everglades Restoration
Pervaze A. Sheikh, Specialist in Natural Resources Policy
IF11336
Anna E. Normand, Analyst in Natural Resources Policy
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