Recent Developments in Everglades Restoration
link to page 1 
Updated December 27, 2023
Recent Developments in Everglades Restoration
Overview
received appropriations and are under construction. Other
What Is the Everglades? The Everglades is a unique
CERP project studies are in progress (see Table 1).
network of subtropical wetlands in South Florida. By the
end of the 20th century, the ecosystem had degraded and
Table 1. Status of CERP USACE Projects in FY2023
was approximately half its historical size, due in part to
U.S. Army Corps of Engineers (USACE) water-supply and
Project Name
Construction
Status
flood-control projects (as well as agricultural and urban
Auth. Year
runoff). The ecosystem is home to Everglades National
Site 1 Impoundment
2007
Phase 1 completed
Park and unique species, including 67 species listed under
the Endangered Species Act (16 U.S.C. §§1531 et seq.).
Picayune Strand
2007
Under construction
Restoration Project
What Is CERP? Congress approved the Comprehensive
Indian River Lagoon
2007 and 2022
Under construction
Everglades Restoration Plan (CERP) in the Water
Resources Development Act of 2000 (WRDA 2000; P.L.
C-43 West Storage
2014 and 2020
Under construction
106-541). CERP is a framework under which the federal
Basin Reservoir
government and the State of Florida are attempting to
C-111 Spreader Canal
2014
Completed and
restore the Everglades and improve the timing, distribution,
Western Project
part of Biscayne
and quality of the water flowing south from Lake
Bay Project study
Okeechobee to the Everglades. Under CERP, the federal
government, through USACE and the Department of the
Broward County
2014
Under construction
Interior (DOI), is to fund half the costs of restoration; the
Water Preserve Areas
State of Florida is to contribute the other half. Tribes and
local agencies also are involved in the restoration effort.
Biscayne Bay Coastal
2014
Under construction
Originally, CERP was to include 60 projects to be
Wetlands Project
completed over 30 years at a cost of $8.2 billion in FY2000
Central Everglades
2016 and 2020
Under construction
dollars (equivalent to $12.0 billion in FY2020 dollars).
Planning Project
Subsequent reports to Congress projected CERP would take
approximately 50 years from its authorization to implement
Everglades Agricultural
2018 and 2020
Under construction
at a total cost of $23.2 billion (in FY2020 dollars) due to
Area Reservoir
inflation, changes in project scope and schedule, and new
Loxahatchee River
2020
Awaiting
project authorizations. Through FY2023, the federal
Watershed Restoration
construction
government and the State of Florida have each spent $2.6
Project
billion (nominal dollars) on CERP construction projects,
according to cost-share transparency reporting.
Lake Okeechobee
Not Applicable Study in progress
Watershed Restoration
for two phases
Separate from CERP, USACE has performed actions
Project
complementary to restoring the Everglades (most of which
Western Everglades
Not Applicable Study in progress
predate CERP). For example, after 22 years of constructing
Restoration Project
the lower Kissimmee River Restoration Project, USACE
completed the project in July 2021. The federal government
Biscayne Bay and
Not Applicable Study in progress
has spent around $1.0 billion (nominal dollars) on these
Southern Everglades
non-CERP construction projects.
Ecosystem Restoration
CERP Projects Face Authorization by
Southern Everglades
Not Applicable Study in progress
Congress
Lake Okeechobee
Not Applicable Nonfederal-led
WRDA 2000 approved CERP and its implementation
Component A Storage
study in progress
process and authorized several pilot projects. The process
Reservoir
requires that USACE produce a project implementation
Sources: South Florida Ecosystem Restoration Task Force, 2022
report and obtain congressional project authorization before
Biennial Report; USACE factsheets, work plans, and spend plans; and
a project can receive federal appropriations for
enacted legislation.
construction, including credit or reimbursement for
Note: Auth. = Authorization; CERP = Comprehensive Everglades
nonfederal work undertaken in advance. Subsequent laws
Restoration Plan; USACE = U.S. Army Corps of Engineers.
authorized projects planned under CERP. Some projects
https://crsreports.congress.gov
link to page 2 link to page 1 Recent Developments in Everglades Restoration
Recent WRDA Authorizations
Source: South Florida Ecosystem Restoration Task Force, FY2024
WRDA 2020. WRDA 2020 (P.L. 116-260, Division AA)
Cross Cut Budget.
authorized two CERP projects―construction of the
Notes: Funding is in mil ions of dol ars. DOI = Department of the
Loxahatchee River Watershed Restoration Project and
Interior.
modifications to the C-43 West Storage Basin Reservoir.
The law authorized two non-CERP activities―Canal 111
Selected Issues for Congress
South Dade Project and a study at Shingle Creek and
As noted in Table 1, USACE and the State of Florida are
Kissimmee River. It also authorized USACE to enter into
conducting studies that may result in project
an agreement for a nonfederal sponsor to pursue
implementation reports or similar reports in time for the
construction of one CERP project on its own. Further, the
118th Congress to consider for authorization in a WRDA
law combined the Central Everglades Planning Project
(e.g., a WRDA 2024). For instance, in 2024, USACE
(CEPP) and Everglades Agricultural Area Reservoir (EAA
anticipates completing, and the Chief of Engineers
Reservoir) into one project. CEPP includes three
recommending, a report covering the wetlands restoration
components—CEPP South, CEPP North, and CEPP New
component of the Lake Okeechobee Watershed Restoration
Water—in the central portion of the Everglades.
Project. (The aquifer storage and recharge portion of the
Collectively, they are to address issues associated with the
project remains under scientific review.) In 2024, USACE
quantity, quality, timing, and distribution of freshwater
also is anticipating the Chief of Engineers to recommend
flows south of Lake Okeechobee into the Everglades
the Western Everglades Restoration Project for construction
Protection Area (e.g., central Everglades and Everglades
authorization. However, at a November 2023 Everglades
National Park). EAA Reservoir aims to store and treat
Task Force meeting, public comment included concerns
around 350,000 acre-feet of water from Lake Okeechobee
regarding the current, tentatively selected plan for this
before it enters CEPP and the Everglades Protection Area.
project. In addition, the State of Florida initiated a
nonfederal study for the Lake Okeechobee Component A
WRDA 2022. WRDA 2022 (P.L. 117-263, Title LXXXI,
Storage Reservoir conducted under the authority of Section
Division H) increased the authorization of appropriations
203 of WRDA 2000, as amended (33 U.S.C. §2231). The
for Indian River Lagoon. The act required an update for
Assistant Secretary of the Army for Civil Works (ASACW)
authorizing committees on CERP, the Lake Okeechobee
must evaluate the study following its submission (projected
System Operating Manual, and other Everglades activities.
for early 2024) to determine whether to recommend to
It also required future accounting updates to CERP
Congress construction authorization, including any
nonfederal sponsors and altered calculations and the
conditions. Congress may consider recommendations from
payment timeline for CERP nonfederal cash contributions.
the Chief of Engineers and the ASACW and stakeholder
Further, the act authorized efforts outside of CERP, which
feedback on whether to authorize these CERP projects for
included a comprehensive plan for restoring, preserving,
construction.
and protecting the Everglades’ northern estuaries and a
study of resiliency improvements to existing projects in
The federal Clean Water Act (33 U.S.C. §§1251-1388)
central and southern Florida.
requires states to establish water quality standards to
support designated uses of waterways. The standards are
Recent Federal Funding
reviewed and require approval by the U.S. Environmental
The timing and level of federal and nonfederal funding
Protection Agency. The act also establishes a permit
affect USACE implementation and completion of
program for discharges of pollutants from wastewater and
authorized projects. DOI implements CERP by conducting
stormwater into receiving waters of the United States.
restoration science and managing and restoring wildlife
Compliance with water quality standards in the Everglades
habitat in the ecosystem. Table 2 lists FY2022 and FY2023
Protection Area has been the subject of ongoing lawsuits. In
annual appropriations and the FY2024 budget request for
2012, the State of Florida developed the Restoration
USACE and DOI CERP and non-CERP activities. In
Strategies Regional Water Quality Plan. The state’s plan is
addition, USACE allocated $1.1 billion in FY2022 to
to expand existing stormwater treatment area (STA)
Everglades restoration activities out of supplemental
acreage and additional infrastructure improvements to meet
funding Congress provided in the Infrastructure Investment
the water quality-based effluent limit for phosphorus into
and Jobs Act (P.L. 117-58) for USACE aquatic ecosystem
the Everglades Protection Area. The State of Florida
restoration.
anticipates the plan’s projects to be constructed and
operational by 2025. Assessment of effluent limit
Table 2. Everglades Restoration: FY2022 and FY2023
attainment for these efforts is required to begin in 2026.
Annual Appropriations and FY2024 Budget Request
The timing of attainment may affect implementation
progress for CEPP North and the EAA Reservoir. The
Agency
Activity
FY2022
FY2023
FY2024
report of the USACE Chief of Engineers specified, and the
Type
Approp.
Approp.
Request
ASACW reaffirmed in 2022, that no federal investment in
USACE
CERP
$352.3
$451.3
$416.6
CEPP North infrastructure can occur until the effluent limit
is met. The State of Florida currently is proceeding with
USACE
Non-CERP
$6.6
$11.7
$11.3
CEPP North construction prior to an attainment
DOI
CERP
$8.2
$8.3
$8.5
determination. In addition, until the plan’s STAs comply
with the effluent limit, USACE intends to limit EAA
DOI
Non-CERP
$56.7
$58.3
$62.1
Reservoir operations to store, and ultimately release, only
https://crsreports.congress.gov
Recent Developments in Everglades Restoration
the amount of water that can be treated to satisfy all
Anna E. Normand, Specialist in Natural Resources Policy
applicable water quality standards.
Pervaze A. Sheikh, Specialist in Natural Resources Policy
IF11336
Disclaimer
This document was prepared by the Congressional Research Service (CRS). CRS serves as nonpartisan shared staff to
congressional committees and Members of Congress. It operates solely at the behest of and under the direction of Congress.
Information in a CRS Report should not be relied upon for purposes other than public understanding of information that has
been provided by CRS to Members of Congress in connection with CRS’s institutional role. CRS Reports, as a work of the
United States Government, are not subject to copyright protection in the United States. Any CRS Report may be
reproduced and distributed in its entirety without permission from CRS. However, as a CRS Report may include
copyrighted images or material from a third party, you may need to obtain the permission of the copyright holder if you
wish to copy or otherwise use copyrighted material.
https://crsreports.congress.gov | IF11336 · VERSION 11 · UPDATED
Updated December 27, 2023
Recent Developments in Everglades Restoration
Overview
received appropriations and are under construction. Other
What Is the Everglades? The Everglades is a unique
CERP project studies are in progress (see Table 1).
network of subtropical wetlands in South Florida. By the
end of the 20th century, the ecosystem had degraded and
Table 1. Status of CERP USACE Projects in FY2023
was approximately half its historical size, due in part to
U.S. Army Corps of Engineers (USACE) water-supply and
Project Name
Construction
Status
flood-control projects (as well as agricultural and urban
Auth. Year
runoff). The ecosystem is home to Everglades National
Site 1 Impoundment
2007
Phase 1 completed
Park and unique species, including 67 species listed under
the Endangered Species Act (16 U.S.C. §§1531 et seq.).
Picayune Strand
2007
Under construction
Restoration Project
What Is CERP? Congress approved the Comprehensive
Indian River Lagoon
2007 and 2022
Under construction
Everglades Restoration Plan (CERP) in the Water
Resources Development Act of 2000 (WRDA 2000; P.L.
C-43 West Storage
2014 and 2020
Under construction
106-541). CERP is a framework under which the federal
Basin Reservoir
government and the State of Florida are attempting to
C-111 Spreader Canal
2014
Completed and
restore the Everglades and improve the timing, distribution,
Western Project
part of Biscayne
and quality of the water flowing south from Lake
Bay Project study
Okeechobee to the Everglades. Under CERP, the federal
government, through USACE and the Department of the
Broward County
2014
Under construction
Interior (DOI), is to fund half the costs of restoration; the
Water Preserve Areas
State of Florida is to contribute the other half. Tribes and
local agencies also are involved in the restoration effort.
Biscayne Bay Coastal
2014
Under construction
Originally, CERP was to include 60 projects to be
Wetlands Project
completed over 30 years at a cost of $8.2 billion in FY2000
Central Everglades
2016 and 2020
Under construction
dollars (equivalent to $12.0 billion in FY2020 dollars).
Planning Project
Subsequent reports to Congress projected CERP would take
approximately 50 years from its authorization to implement
Everglades Agricultural
2018 and 2020
Under construction
at a total cost of $23.2 billion (in FY2020 dollars) due to
Area Reservoir
inflation, changes in project scope and schedule, and new
Loxahatchee River
2020
Awaiting
project authorizations. Through FY2023, the federal
Watershed Restoration
construction
government and the State of Florida have each spent $2.6
Project
billion (nominal dollars) on CERP construction projects,
according to cost-share transparency reporting.
Lake Okeechobee
Not Applicable Study in progress
Watershed Restoration
for two phases
Separate from CERP, USACE has performed actions
Project
complementary to restoring the Everglades (most of which
Western Everglades
Not Applicable Study in progress
predate CERP). For example, after 22 years of constructing
Restoration Project
the lower Kissimmee River Restoration Project, USACE
completed the project in July 2021. The federal government
Biscayne Bay and
Not Applicable Study in progress
has spent around $1.0 billion (nominal dollars) on these
Southern Everglades
non-CERP construction projects.
Ecosystem Restoration
CERP Projects Face Authorization by
Southern Everglades
Not Applicable Study in progress
Congress
Lake Okeechobee
Not Applicable Nonfederal-led
WRDA 2000 approved CERP and its implementation
Component A Storage
study in progress
process and authorized several pilot projects. The process
Reservoir
requires that USACE produce a project implementation
Sources: South Florida Ecosystem Restoration Task Force, 2022
report and obtain congressional project authorization before
Biennial Report; USACE factsheets, work plans, and spend plans; and
a project can receive federal appropriations for
enacted legislation.
construction, including credit or reimbursement for
Note: Auth. = Authorization; CERP = Comprehensive Everglades
nonfederal work undertaken in advance. Subsequent laws
Restoration Plan; USACE = U.S. Army Corps of Engineers.
authorized projects planned under CERP. Some projects
https://crsreports.congress.gov
link to page 2 link to page 1 Recent Developments in Everglades Restoration
Recent WRDA Authorizations
Source: South Florida Ecosystem Restoration Task Force, FY2024
WRDA 2020. WRDA 2020 (P.L. 116-260, Division AA)
Cross Cut Budget.
authorized two CERP projects―construction of the
Notes: Funding is in mil ions of dol ars. DOI = Department of the
Loxahatchee River Watershed Restoration Project and
Interior.
modifications to the C-43 West Storage Basin Reservoir.
The law authorized two non-CERP activities―Canal 111
Selected Issues for Congress
South Dade Project and a study at Shingle Creek and
As noted in Table 1, USACE and the State of Florida are
Kissimmee River. It also authorized USACE to enter into
conducting studies that may result in project
an agreement for a nonfederal sponsor to pursue
implementation reports or similar reports in time for the
construction of one CERP project on its own. Further, the
118th Congress to consider for authorization in a WRDA
law combined the Central Everglades Planning Project
(e.g., a WRDA 2024). For instance, in 2024, USACE
(CEPP) and Everglades Agricultural Area Reservoir (EAA
anticipates completing, and the Chief of Engineers
Reservoir) into one project. CEPP includes three
recommending, a report covering the wetlands restoration
components—CEPP South, CEPP North, and CEPP New
component of the Lake Okeechobee Watershed Restoration
Water—in the central portion of the Everglades.
Project. (The aquifer storage and recharge portion of the
Collectively, they are to address issues associated with the
project remains under scientific review.) In 2024, USACE
quantity, quality, timing, and distribution of freshwater
also is anticipating the Chief of Engineers to recommend
flows south of Lake Okeechobee into the Everglades
the Western Everglades Restoration Project for construction
Protection Area (e.g., central Everglades and Everglades
authorization. However, at a November 2023 Everglades
National Park). EAA Reservoir aims to store and treat
Task Force meeting, public comment included concerns
around 350,000 acre-feet of water from Lake Okeechobee
regarding the current, tentatively selected plan for this
before it enters CEPP and the Everglades Protection Area.
project. In addition, the State of Florida initiated a
nonfederal study for the Lake Okeechobee Component A
WRDA 2022. WRDA 2022 (P.L. 117-263, Title LXXXI,
Storage Reservoir conducted under the authority of Section
Division H) increased the authorization of appropriations
203 of WRDA 2000, as amended (33 U.S.C. §2231). The
for Indian River Lagoon. The act required an update for
Assistant Secretary of the Army for Civil Works (ASACW)
authorizing committees on CERP, the Lake Okeechobee
must evaluate the study following its submission (projected
System Operating Manual, and other Everglades activities.
for early 2024) to determine whether to recommend to
It also required future accounting updates to CERP
Congress construction authorization, including any
nonfederal sponsors and altered calculations and the
conditions. Congress may consider recommendations from
payment timeline for CERP nonfederal cash contributions.
the Chief of Engineers and the ASACW and stakeholder
Further, the act authorized efforts outside of CERP, which
feedback on whether to authorize these CERP projects for
included a comprehensive plan for restoring, preserving,
construction.
and protecting the Everglades’ northern estuaries and a
study of resiliency improvements to existing projects in
The federal Clean Water Act (33 U.S.C. §§1251-1388)
central and southern Florida.
requires states to establish water quality standards to
support designated uses of waterways. The standards are
Recent Federal Funding
reviewed and require approval by the U.S. Environmental
The timing and level of federal and nonfederal funding
Protection Agency. The act also establishes a permit
affect USACE implementation and completion of
program for discharges of pollutants from wastewater and
authorized projects. DOI implements CERP by conducting
stormwater into receiving waters of the United States.
restoration science and managing and restoring wildlife
Compliance with water quality standards in the Everglades
habitat in the ecosystem. Table 2 lists FY2022 and FY2023
Protection Area has been the subject of ongoing lawsuits. In
annual appropriations and the FY2024 budget request for
2012, the State of Florida developed the Restoration
USACE and DOI CERP and non-CERP activities. In
Strategies Regional Water Quality Plan. The state’s plan is
addition, USACE allocated $1.1 billion in FY2022 to
to expand existing stormwater treatment area (STA)
Everglades restoration activities out of supplemental
acreage and additional infrastructure improvements to meet
funding Congress provided in the Infrastructure Investment
the water quality-based effluent limit for phosphorus into
and Jobs Act (P.L. 117-58) for USACE aquatic ecosystem
the Everglades Protection Area. The State of Florida
restoration.
anticipates the plan’s projects to be constructed and
operational by 2025. Assessment of effluent limit
Table 2. Everglades Restoration: FY2022 and FY2023
attainment for these efforts is required to begin in 2026.
Annual Appropriations and FY2024 Budget Request
The timing of attainment may affect implementation
progress for CEPP North and the EAA Reservoir. The
Agency
Activity
FY2022
FY2023
FY2024
report of the USACE Chief of Engineers specified, and the
Type
Approp.
Approp.
Request
ASACW reaffirmed in 2022, that no federal investment in
USACE
CERP
$352.3
$451.3
$416.6
CEPP North infrastructure can occur until the effluent limit
is met. The State of Florida currently is proceeding with
USACE
Non-CERP
$6.6
$11.7
$11.3
CEPP North construction prior to an attainment
DOI
CERP
$8.2
$8.3
$8.5
determination. In addition, until the plan’s STAs comply
with the effluent limit, USACE intends to limit EAA
DOI
Non-CERP
$56.7
$58.3
$62.1
Reservoir operations to store, and ultimately release, only
https://crsreports.congress.gov
Recent Developments in Everglades Restoration
the amount of water that can be treated to satisfy all
Anna E. Normand, Specialist in Natural Resources Policy
applicable water quality standards.
Pervaze A. Sheikh, Specialist in Natural Resources Policy
IF11336
Disclaimer
This document was prepared by the Congressional Research Service (CRS). CRS serves as nonpartisan shared staff to
congressional committees and Members of Congress. It operates solely at the behest of and under the direction of Congress.
Information in a CRS Report should not be relied upon for purposes other than public understanding of information that has
been provided by CRS to Members of Congress in connection with CRS’s institutional role. CRS Reports, as a work of the
United States Government, are not subject to copyright protection in the United States. Any CRS Report may be
reproduced and distributed in its entirety without permission from CRS. However, as a CRS Report may include
copyrighted images or material from a third party, you may need to obtain the permission of the copyright holder if you
wish to copy or otherwise use copyrighted material.
https://crsreports.congress.gov | IF11336 · VERSION 11 · UPDATED