Progress Toward Restoring the Everglades The Fourth Biennial Review, 2012 (2012) / Chapter Skim
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3 Implementation Progress
3 Implementation Progress
Pages 39-94
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From page 39... ...
, which was developed in consultation with the South Florida Ecosystem Restoration Task Force (hereafter, simply the Task Force) and reflects the priorities of the CERP partners as well as sequencing constraints and other project implementation issues.
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: "The complex project planning and approval process has been a major cause of delays for CERP projects to date. The greatest challenge in the project planning process has been developing technically sound project plans that are acceptable to the many agencies and stakeholders involved.
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From page 41... ...
By accelerating the Decomp project, which has been identified as the highest priority project for reversing ecosystem decline and advancing restoration (Ad Hoc Senior Scientists, 2007) , the committee concluded that the March 2010 IDS was consistent with the goal of achieving substantial restoration benefits as soon as possible.
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From page 42... ...
As a result, NRC (2007) concluded that "production of natural system restoration benefits within the Water Conservation Areas and Everglades National Park is lagging behind production of natural system restoration benefits in other portions of the South Florida ecosystem." Although the C-111 Spreader Canal and Broward County WPAs would enhance seepage management in the central Everglades, the remaining Generation 2 projects largely target restoration benefits outside of the remnant Everglades.
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From page 43... ...
Project Planning, Approval, and Authorization A complex project planning, approval, and authorization process is in place for CERP projects (as described in NRC, 2007) that significantly affects the pace of project implementation.
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editable vector image The USACE is testing its revised planning process with a nationwide pilot program focused on five projects -- two navigation, one flood control, and two environmental restoration projects. The intent of the pilot program is three-fold: 1)
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From page 45... ...
is to improve the quantity, quality, timing and distribution of water flows to the central Everglades (WCA 3 and ENP) ." Project goal: "The goal of the CEPP is to improve the quantity, quality, timing, and distribution of water in the Northern Estuaries, Water Conservation Area 3, and Everglades National Park in order to restore the hydrology, habitat, and functions of the natural system." Project objectives: • "Restore seasonal hydroperiods and freshwater distribution to support a natural mosaic of wetland and upland habitat in the Everglades system • Improve sheetflow patterns and surface water depths and durations in the E verglades system in order to reduce soil subsidence, the frequency of damaging peat fires, the decline of tree islands, and saltwater intrusion • Reduce water loss out of the natural system to promote appropriate dry season recession rates for wildlife utilization • Restore more natural water level responses to rainfall to promote plant and animal diversity and habitat function • Reduce high volume discharges from Lake Okeechobee to improve the quality of oyster and submerged aquatic vegetation (SAV)
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46 Progress Toward Restoring the Everglades FIGURE 3-3 The Central Everglades Planning Project study region, including areas potentially impacted the project.
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The USACE is to be commended for undertaking this much needed and ambitious effort. The Central Everglades Planning Project team has identified several concerns and limitations in the Draft Project Management Plan (USACE and SFWMD, 2012)
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From page 48... ...
Since 2007, Chief's reports have been issued for four additional projects (C-43 Reservoir, C-111 Spreader Canal, Biscayne Bay Coastal Wetlands, Broward County Water Preserve Areas. These four projects represent the Gen eration 2 CERP projects (Table 3-1)
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Implementation Progress 49 FIGURE 3-4 Locations of CERP and CERP-related projects and pilots listed in Table 3-1. Projects actively under construction are noted with a dark circle.
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2007 2014 2018 Melaleuca Eradication and Other 2011 2026 2012 Exotic Plants RESTORATION PROJECTS -- Generation 2 C-111 Spreader Canal* 2008 - Western Project (PIR#1)
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2004 1999 ongoing PPDR Final Authorized in WRDA Completed Installed 2008; Testing Oct. 2004 1999 ongoing NA NA Completed Ongoing PPDR Final May 2009 Authorized in WRDA Completed On hold 2000 NA NA Completed Ongoing NA Programmatic Completed Testing completed Authority WRDA 2000 NA Programmatic Completed Ongoing Authority WRDA 2000 Submitted to Congress Construction Completed Prairie Canal completed in in 2005 Authorized in WRDA 2007 (expedited by FL)
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NOTES: Projects in Table 3-1 reflect those CERP projects or pilot projects that are now identified in the IDS (April 2011 version) for construction start prior to 2020, and other projects deemed by the commit tee to be relevant to CERP progress.
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From page 53... ...
Financial History of Non-CERP and CERP Restoration Projects Appropriations for non-CERP restoration projects, such as the Kissimmee River Restoration Project and Mod Waters, have been much greater than on CERP projects: $2.53 on non-CERP projects for every $1.00 on CERP projects. Non-federal partners have budgeted $3.28 for non-CERP projects for every $1.00 by the federal government (Table 3-2)
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From page 54... ...
funding in FY 2010. More than 90 percent of CERP monies went to the USACE for major construction projects, pilot projects, and project planning and design, with some funding to the Department of Interior for CERP planning support.
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. Non-CERP projects continued to receive a large share of South Florida ecosystem restoration funds, and this funding has been relatively steady over the past four years.
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9.0 18 35 36 • C-111 S Dade County • West Palm Beach Canal • Canal-51/STA-1E Critical Projects 3.5 2.7 5.2 1.0 USDA NRCS 61 154 111 63a Kissimmee River Restoration 28 45 7.0 46 Mod Waters 60 8.4 8.0 8.0 Everglades National Park management 30 31 30 31 DOI land acquisition 0 0 0 31 USGS research, planning, and coordination 6.9 6.9 6.9 6.9 a Wetlands Reserve Program funding amounts for FY 2012 are not included.
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SOURCE: Data from Statements of Revenues, Expenditures and Fund Balances, Comprehensive Annual Financial Reports FY2004-2010 and Updated Monthly Financial Statement for September 2011 (SFWMD, 2004, 2005, 2006, 2007, 2008a, 2009a, 2010, 2011a)
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From page 58... ...
The SFWMD's Monthly Financial Statement for September 2011 covering all expenditures for FY 2011 shows revenue from fund balances of $640 million, but only a portion of that was actually spent. When the tentative FY 2012 budget was submitted for approval in August 2011, it included a five-year $358 million plan to spend down fund balances, starting with an end-of-year projection of $417 million and leaving $59 million at the end of FY 2016 for contingen cies and operations and maintenance of the capital reserve (SFWMD, 2011b)
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196.62 Lake Okeechobee Watershed 56.41 Everglades National Park Seepage Management 11.22 OTHER PROJECTS EAA Storage Reservoirs -- Phase 1 242.95 River of Grass 225.54 Southern Crew/Imperial River Flow-way 13.56 Lake Trafford Restoration 9.17 PROGRAM SUPPORT Acceler8 Program Support 141.90 Adaptive Assessment and Monitoring 21.17 Interagency Modeling Center 11.13 Data Management 6.86 NOTE: Only projects with at least $5 million in total expenditures are included. SOURCES: Caffie-Simpson et al.
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From page 60... ...
from FY 2009 through FY 2012 reveal a dramatic reduction in projected spending for restoration -- particularly for Generation 1 and 2 CERP projects -- as well as for overall spending. The FY 2009 five-year CIP included $1.63 billion for Everglades restoration in FY 2010 through FY 2013, including CERP and non CERP Everglades Restoration (SFWMD, 2008b)
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110 69 C-44 Reservoir/STA 36 30 C-111 Spreader Canal 1 Debt Service 79 DISTRICT EVERGLADES RESTORATION TOTAL 315 Water Quality Enhancement Projects 164 100 Rotenberger Pump Station Design & Construction 5 Compartment B Build-out 5 5 Compartment C Build-out 6 6 Debt Service and Debt Service Reserves 128 COASTAL WETLANDS TOTAL 34 Caloosahatchee Basin (C-43) Storage/Treatment and Facility 21 19 Local Projects 12 Lakes Park Restoration 2 LAKE OKEECHOBEE TOTAL 60 Dispersed Storage (existing and new commitments)
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From page 62... ...
The extensive "creditable expenditures" associated with land acquisition and construc tion costs that the state has amassed related to other CERP projects (e.g., some components of the Generation 1 projects and all later projects) are essentially locked up until those projects are authorized, federal funding is appropriated, and a project partnership agreement is signed.
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From page 63... ...
If fully realized, the area would include up to 150,000 acres protected by conservation easements and land purchases to conserve habitats and protect the Kissimmee River watershed from development that could negatively impact Lake Okeechobee and Everglades water quality. Endangered Species Issues Past reports of this committee have highlighted concerns over the potential impacts of endangered species issues on restoration progress and emphasized the importance of multi-species management (NRC, 2008, 2010)
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Specifically its focus is on improving hydrology in southern WCA-3A without causing increased deterioration of conditions in Everglades National Park to the south, given the existing water management infrastructure and avail ability of water in the central Everglades. The cost of this approach is likely to be increased drying out of northern and even central WCA-3A, increasing the rate of degradation in those areas.
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Blacknecked stilts are not endangered, but they are protected by the Migratory Bird Treaty Act. This elderly piece of legislation is less detailed than the Endangered Species Act and includes no provision for the FWS to authorize take.
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In the absence of any such evidence, the Avian Protection Plan appears to provide a reasonable resolution to the issue. The endangered species issue in the STAs involves the snail kite and appears to present more significant challenges than does the Migratory Bird Treaty Act.
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From page 67... ...
Additionally, multi-species approaches can be used to lend weight to system-wide endangered species benefits that counter local costs. In the case of kites, for example, such an approach might involve assigning more weight to population performance and less to the fate of individual nests, and incorporating criteria that result in high and low water levels and recession rates favorable to kites into operational specifications for CERP projects.
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From page 68... ...
projects, and the state continues to fund expedited restoration projects not yet authorized, albeit at rates reduced from prior years. In the following sections the committee highlights CERP implementation progress with a focus on progress in achieving natural system restoration benefits through incremental implementa tion and learning achieved through CERP pilot projects.
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. Generation 1 Projects The Generation 1 projects represent those projects authorized by Congress in WRDA 2007 (Picayune Strand Restoration, Site 1 Impoundment, and Indian River Lagoon-South)
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A third will be awarded Harry Pepper an for the protection features to the west of the project. 70 Progress Toward Restoring the Everglades STATE OF FLORIDA CONSTRUCTION FAKA UNIO Construction projects being performed by the South Florida Water AWARDED Management District include Prairie Canal, Port of the Islands Protection November 2010 Features and Manatee Mitigation.
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, the project is designed to reduce seepage and provide water storage to reduce water demands on Lake Okeechobee and LNWR. To accomplish these objectives, the project includes constructing a reservoir with a capacity of 13,300 acre-feet, along with supporting spillways, seepage management features, and a pump station.
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Figure 3-8 R02233 (Everglades 4) raster iamge
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From page 73... ...
Water flows from urban and agricultural areas along with discharge releases from Lake Okeechobee have resulted in declining water quality in the lagoon and its associated habitats. Water managers have experienced difficulty controlling water quantity in the coastal drainages, and some lands have been drained for agricultural purposes, resulting in the loss of freshwater marsh areas.
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These plans are substantially different from those published in the Yellow Book (USACE and SFWMD, 1999) , but they represent a broadly based effort to restore water quality to the St.
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In the past two years, the state has continued construction of two Generation 2 projects: Biscayne Bay Coastal Wetlands and the C-111 Spreader Canal. Biscayne Bay Coastal Wetlands.
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raster iamge
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. By preventing eastward seepage of water from Everglades National Park, the Western Project aims to increase flow volumes in Taylor Slough, thereby restoring coastal salinities in western Florida Bay.
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raster iamge at the S-18C structure do not produce the desired increases in Taylor Creek flows, then the federal government may construct an operable structure in the lower C-111 Canal (S-198) at an estimated cost of $5.3 million (2012 estimate)
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Although the USACE and the SFWMD are still finalizing plans for the Loxahatchee River Watershed Restoration project (formerly the North Palm Beach County project; Figure 3-4, No.
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Three of the four projects discussed in this section have direct bearing on the planning for Generation 2 or 3 CERP projects. Aquifer Storage and Recovery Pilot Studies and Regional Study Aquifer storage and recovery (ASR)
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Preliminary results indicate that the original plan for 333 5-MGD ASR wells in the Upper Floridan aquifer is not feasible 5 The Floridan aquifer proved to be too sandy for ASR at the Caloosahatchee site, and funding limitations prevented ASR pilot construction at the Port Mayaca and Moore Haven sites. 6 Cycle testing involves freshwater injection followed by a rest period and subsequent withdrawal to examine feasible injection and recovery rates, impacts on local groundwater levels, and effects on water quality.
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From page 82... ...
to achieve the original water storage objectives of the CERP. Seepage Management The CERP contains plans for seepage management projects east of WCA-3 and Everglades National Park to reduce eastward groundwater seepage and flooding of urban and agricultural lands.
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is a large-scale field experiment intended to inform project planning decisions by reducing uncertainty about the ecological effects of various options for restoring sheet flow to the ridge-and-slough landscape.
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The extensive permitting process appears to reflect not so much the actual impact of the DPM on water quality but rather the precedent that its permitting sets with respect to water management policy and procedures integrating water quality and water quantity.
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The progress of the CERP depends upon the successful implementation and effective operation of these non-CERP projects, and three that are particularly important are the Mod Waters project, the restoration of the Kissimmee River, and the state's Longterm Plan for Achieving Water Quality Goals. This committee has followed the implementation of these projects in its past reports (NRC, 2007, 2008, 2010)
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From page 86... ...
and recommended a project alternative that would add 5.5 miles of bridges and raise the roadbed to accommodate a design high-water stage of 9.7 feet. This initiative would restore sheet flow across much of Northeast Shark River Slough, allow substantially higher flow volumes and velocities during wet weather conditions, and improve ecological connectivity between Everglades National Park and WCA-3 when implemented in conjunction with other planned restoration projects.
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Figure 3-14 R02233 (Everglades 4) raster iamge
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. In summary, the Kissimmee River Restoration Project is on track to restore one of the key components of the South Florida ecosystem.
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On June 4, 2012, the SFWMD outlined the general contours of its alternative plan. In particular, the state has articulated its intent and commitment to construct additional water storage and treatment projects to meet water quality goals.
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The proposed plan includes enhanced water quality treatment in each of the three flow paths into the Everglades Protection Area: the eastern flow path, the central flow path, and the western flow path (see Figure 3-16)
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From page 91... ...
Progress is also being made on important non-CERP projects, including the Kissimmee River Restoration and Mod Waters. Nevertheless, as noted in previous committee reports, production of natural system restoration benefits within the Water Conservation Areas and Everglades National Park continues to lag behind restoration progress in other portions of the South Florida ecosystem.
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From page 92... ...
The Central Everglades Planning Project is one of five USACE pilot projects nationwide that will test a new accelerated project planning process, with the goal of delivering an approved project implementation report to Congress within two years. The focus on the central Everglades (Water Conservation Area 3 and Everglades National Park)
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Without a new WRDA, the federal government will be unable to maintain progress on several second-generation, state-expedited projects now under way (e.g., C-111 Spreader Canal, Biscayne Bay Coastal Wetlands)
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operations and protection of the nests of black-necked stilts and other migratory birds. Addi tional conflicts between the needs of endangered species and what is required to restore the ecosystem restoration are inevitable in the transition to a fully implemented CERP.
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