CERP: The Plan in Depth

CERP: The Plan in Depth - Part 1

The Comprehensive Everglades Restoration Plan (CERP) is a framework and guide to restore, protect, and preserve the water resources of central and southern Florida.

• The Plan has been described as the world's largest ecosystem restoration effort and includes more than 60 major components.
• Because the region's environment and economy are integrally linked, the Plan provides important economic benefits.
• Thus, the Plan will result in a sustainable south Florida by restoring the ecosystem, ensuring clean and reliable water supplies, and providing flood protection.

What is the plan?

The Comprehensive Everglades Restoration Plan provides a framework and guide to restore, protect, and preserve the water resources of central and southern Florida, including the Everglades. It covers 16 counties over an 18,000-square-mile area, and centers on an update of the Central & Southern Florida (C&SF) Project. The current C&SF Project includes 1,000 miles of canals, 720 miles of levees, and several hundred water control structures. The C&SF Project provides water supply, flood protection, water management and other benefits to south Florida. Since 1948, the C&SF Project has performed its authorized functions well. However, the project has had unintended adverse effects on the unique and diverse environment that constitutes south Florida ecosystems, including the Everglades and Florida Bay.

 

The Water Resources Development Acts in 1992 and 1996 provided the U.S. Army Corps of Engineers with the authority to re-evaluate the performance and impacts of the C&SF Project and to recommend improvements and or modifications to the project in order to restore the south Florida ecosystem and to provide for other water resource needs. The resulting Comprehensive Plan is designed to capture, store and redistribute fresh water previously lost to tide and to regulate the quality, quantity, timing and distribution of water flows.

 

The Plan was approved in the Water Resources Development Act of 2000. It includes more than 60 elements, was estimated to take at least 30 years to complete and originally estimated to cost $7.8 billion in October 1999 dollars (or at 1999 price levels).

The major Plan components are:

1. Surface Water Storage Reservoirs
2. Water Preserve Areas
3. Management of Lake Okeechobee as an Ecological Resource
4. Improved Water Deliveries to the Estuaries
5. Underground Water Storage
6. Treatment Wetlands
7. Improved Water Deliveries to the Everglades
8. Removal of Barriers to Sheetflow
9. Storage of Water in Existing Quarries
10. Reuse of Wastewater
11. Pilot Projects
12. Improved Water Conservation
13. Additional Feasibility Studies

 

CERP: The Plan in Depth - Part 2

Getting the water right is the critical part of restoring the south Florida ecosystem. The Comprehensive Plan will do this, and its benefits are not dependent on other efforts. But the Comprehensive Plan is also part of a larger effort to restore the ecosystem and provide for a sustainable south Florida. A strategic plan entitled Coordinating Success: a Strategy for the South Florida Ecosystem was developed under the direction of the South Florida Ecosystem Task Force by federal, state, local and tribal leaders. And it is updated along with the Biennial Report Tracking Success every two years. Over 200 projects are tied together under the strategic plan. The Task Force provides guidance to each project from a larger perspective and works to resolve disputes.

Getting the Water Right

The Comprehensive Plan is the cornerstone of getting the water right because it addresses the problem on a regional basis. There are, however, other Corps projects of a more limited scope that work toward restoring and enhancing the natural system. The Corps has been working on the restoration of the Kissimmee River since the late 1990s that will return the natural areas of the river and improve wildlife habitat in the northern part of the greater Everglades system. Two other projects are underway to return water flows to Everglades National Park through Shark River and Taylor Sloughs, two historically important water "channels" for the River of Grass.

State and Local Efforts also Address Water

Water quality problems are being addressed by the state through the multi-step Everglades ConstructionProject that uses wetlands for stormwater treatment areas and encourages best management practices to reduce pollutants in runoff from cities and farms. The South Florida Water Management District is also developing regional and sub-regional water supply plans to provide for better water resources management. The photo to the right reflects a pumping facility under construction adjacent to the Everglades National Park.

Restoring and Enhancing the Natural System

Efforts to restore and enhance the natural environment are also taking place at the region-wide level as well as on a smaller scope. These efforts focus on two primary components: species diversity and habitat protection. For example, the Multi-Species Recovery Plan, developed by the U. S. Fish and Wildlife Service, provides a comprehensive strategy to address habitat needs of the 68 endangered species in the area. Another example, the Corps’ Environmental Impact Statement for Southwest Florida, will provide a comprehensive framework for evaluating future requests for development permits.

Transforming the Built Environment is Another Goal of the Overall Restoration Effort

Growth issues are being addressed at the state and local level. Efforts to balance growth and resource protection, as well as efforts to enhance the quality of life in urban areas are all important to the overall ecosystem. The Florida initiative called Eastward Ho! will redirect future development into the historical eastern corridor, revitalizing older urban areas. The broad effort by Miami-Dade County to address land use and water management will determine the future economic, social, and environmental sustainability for most of urban and rural Miami-Dade County. The joint state and Corps effort under the Florida Keys Carrying Capacity Study provided an information base for managers to make decisions about balancing economic and environmental needs.

Efforts by federal, state, local and tribal entities represent the commitment of all to have a comprehensive and integrated strategic plan to achieve restoration and sustainability. The Comprehensive Plan complements these efforts.

 

 

CERP: The Plan in Depth - Part 3
Development & Study Goals

The Central and Southern Florida (C&SF) Project is a multi-purpose project which was first authorized in 1948 to provide flood control, water control, water supply, and other services to the area that stretches from Orlando to Florida Bay. The project has performed its intended purposes well.  However, the project has also contributed to the decline of the south Florida ecosystem.  The purpose of the C&SF Project Comprehensive Review Study (Restudy) was to re-examine the C&SF Project to determine the feasibility of modifying the project to improve the sustainability of South Florida.  Specifically, as required by the authorizing legislation, the study investigated and recommended making structural and operational modifications to the C&SF Project for improving the quality of the environment; improving protection of the aquifer; improving the integrity, capability, and conservation of urban and agricultural water supplies; and improving other water-related purposes.

 

At the time WRDA 1986 was passed, planning for U.S. Army Corps of Engineers projects had been accomplished in two phases - the reconnaissance phase and the feasibility phase.  The reconnaissance phase of the Restudy was initiated in June 1993 and the Reconnaissance Report was completed in November 1994.  The feasibility phase of the Restudy, which is cost-shared between the Corps of Engineers and the South Florida Water Management District, was initiated in August 1995.

 

Subsequent to initiation of the feasibility study, there have been a number of major developments that have affected the Restudy.  First, the Governor’s Commission for a Sustainable South Florida undertook a major effort to assist the Restudy. This effort involved the development of preferred alternatives for the Restudy and culminated in adoption of a Conceptual Plan for the Restudy in August 1996.  In addition, the Water Resources Development Act of 1996 (PDF) provides specific congressional direction concerning the Restudy.  Specifically, the Act requires the completion of a comprehensive plan and submission of the feasibility report and Programmatic Environmental Impact Statement to Congress by July 1, 1999.  The Act also establishes 50-50 cost sharing for C&SF Project modifications, including water quality features essential for restoration, and authorizes construction of critical restoration projects.

 

The purpose of this feasibility study was to develop a comprehensive plan for the overall C&SF system and the tools necessary to evaluate the comprehensive plan as well as separable and incremental portions of the project. The comprehensive plan includes such features as are necessary to provide for the water-related needs of the region, including flood control, the enhancement of water supplies, and other objectives served by the C&SF Project.  The resulting Restudy includes findings from other study efforts including the Indian River Lagoon Feasibility Study, and Water Preserve Areas Feasibility Study.  The end-product was the C&SF Project Comprehensive Review Study Final Integrated Feasibility Report and Programmatic Environmental Impact Statement (April 1999) that Congress authorized in WRDA 2000 as the CERP or "Plan".

Comprehensive Plan Goals and Objectives

The Restudy reviewed how the C&SF Project was functioning and determined the modifications needed to achieve a new set of objectives.  The precursor to the feasibility phase of the study — the reconnaissance study — identified a set of regional-scale planning objectives.  The Governor’s Commission for a Sustainable South Florida also developed a set of regional-scale objectives for the Restudy.  A synthesis of these has resulted in an inclusive set of objectives to achieve two general goals for south Florida’s ecosystem: enhance ecologic values and enhance economic values and social well being.

Goals and Objectives for the C&SF Restudy

Goal:  Enhance Ecologic Values

• Increase the total spatial extent of natural areas
• Improve habitat and functional quality
• Improve native plant and animal species abundance and diversity

 

Goal: Enhance Economic Values And Social Well Being

• Increase availability of fresh water (agricultural/municipal & industrial)
• Reduce flood damages (agricultural/urban)
• Provide recreational and navigation opportunities
• Protect social and cultural resources and values

 

The Restudy planning objectives were developed as the result of public participation and scientific knowledge of south Florida.  Through workshops conducted during the reconnaissance phase of the Restudy and subsequent technical evaluations, it is evident that the C&SF Project must continue to provide valuable services to developed areas as originally intended.   Therefore, many of the economic and social objectives are similar to those of the original C&SF Project.

Enhance Ecologic Values

Healthy natural systems are integral to the sustainability of south Florida.  These systems provide numerous functions such as plant and animal habitat, recreation and educational opportunities (photography, fishing, hunting, bird watching, etc.), water quality filtration including removal of nutrients and silt, ground water recharge, soil formation, hydrologic linkages, ground water quality protection, interception of airborne pollutants, shoreline stabilization, and protection against erosion.  Wetlands, in particular, retard floodwater and provide surface water storage.  Mangroves and estuarine areas provide critical breeding habitat for finfish and shellfish, including several of commercial interest.  Upland natural systems function as noise buffers, urban green space, habitat for plants and animals (such as tree snails, deer, hundreds of species of birds, and the endangered panther and indigo snake), and travel corridors for these same animals.  Thus, plant and animal habitat, although perhaps the most obvious benefit or function, is just one of many functions that natural systems provide. Collectively, these systems benefit the natural ecology and support agricultural, urban, and other human interests as well.

 

Two recent documents are particularly important in framing the Restudy's goal for enhancing ecological values.  These documents, which were prepared by many of the leading experts on Everglades ecology, are The Science Sub-Group Report, Federal Objectives for the South Florida Restoration (Science Sub-Group, 1993), and Everglades, the Ecosystem and Its Restoration (Davis and Ogden, 1994).  Another earlier publication, Ecosystems of Florida (Myers and Ewel, 1990) also contributed substantial input into the Restudy.

Enhance Economic Values And Social Well Being

The C&SF Project provides economic benefits through regional water supply, flood damage reduction, navigation, and recreation.  While most people recognize the need for a healthy ecosystem to support the region's economy and jobs, there are others who are concerned that potential restoration projects will displace farms and other businesses, limit development, and reduce job opportunities.  By contrast, continued degradation of the south Florida environment will inevitably adversely affect the tourism and recreational industry that are important to the regional economy.

 

Many people recognize the beneficial services provided by the C&SF Project. Public concerns about water supply and flood control generally center on preservation of the existing protection from relatively frequent flooding, and delivering water for aquifer recharge, as provided by the C&SF Project.

A Hydrologic Solution

Alternative plans had to be formulated for the Restudy such that they could be evaluated to reveal important effects, including effects that reflect progress toward meeting the objectives, as well as effects that are of interest for other reasons.  Usually, plans are developed based on a particular strategy.  A strategy defines the approach to a problem in terms of the means and the results that are sought.  It is a process of translating the objectives to means to achieve them.

 

Numerous studies support the theory that the remaining natural system can be changed in the direction of its pre-drainage wetland character through modifications to the hydrologic features.  The issue that remains is how to accomplish the ecologic restoration objectives while allowing the system to serve the economic and social needs of the region.  The hydrologic characteristics that form this strategy, while not in themselves objectives, provide a basis to formulate alternative components as well as measure and evaluate how they will effect both ecologic and economic goals.  They include:

Goal: Enhance Economic Values And Social Well Being

• Regain lost storage capacity
• Restore a more natural hydropattern
• Improve timing and quantities of fresh water deliveries to estuaries
• Restore water quality conditions

Plan Formulation

Plan formulation is an iterative planning process that identifies alternative plans to achieve a set of planning objectives and allows those plans to be modified as more information becomes available.   Each iteration of this process provides an opportunity to refine and sharpen the planning focus.  The reconnaissance phase of the Comprehensive Review Study (Restudy) and the Lower East Coast Regional Water Supply Planning process provided the framework that refined and evaluated the many ideas that culminated in the selection of the CERP "the Plan".

 

In February 1996, the Restudy team began considering a vast array of ideas (components or options) that could be included in a comprehensive plan.  These components were generated from a number of sources including the Restudy reconnaissance report and the Lower East Coast Regional Water Supply planning documents.  The components were then used by the Governor’s Commission for a Sustainable South Florida to create their Conceptual Plan for the Restudy. The Conceptual Plan contained the following Themes that were used in the Restudy as the framework to evaluate alternative components that were recommended in the final Plan.

The 13 Thematic Concepts include:

1. Regional Storage Within the Everglades Headwaters and Adjacent Areas
2. Lake Okeechobee Operational Plan
3. Everglades Agricultural Area Storage
4. Water Preserve Areas
5. Natural Areas Continuity
6. Water Supply and Flood Protection for Urban and Agricultural Areas
7. Adequate Water Quality for Ecosystem Functioning
8. Spatial Extent and Quality of Other Wetlands
9. Invasive Plant Control
10. Aquifer Storage and Recovery
11. Protection and Restoration of Coastal, Estuarine, and Marine Ecosystems
12. Conservation of Soil
13. Operation and Management of the C&SF Project and Related Lands

Components

The Comprehensive Plan for the C&SF Project consists of structural and operational changes to the C&SF Project. Individual project features have been termed components.  Components have been developed by sub-regions and were optimized at the sub-regional level then grouped with other components to form alternative Comprehensive Plans.  These plans were then evaluated and trade-offs determined using the system-wide objectives stated previously. This evaluation provided the Restudy critical data to determine what refinements to the plan were needed.

Component Screening

The purpose of the screening analysis was to define the range of components to be used by the Restudy team in developing alternative comprehensive plans. The Restudy defines components as conceptual project features (or options) intended to achieve a particular planning objective or set of planning objectives.  During the subsequent study phase, the team used the data from the screening Phase to develop alternative comprehensive plans, each consisting of different combinations of these components.

 

The Restudy team considered more than 100 components. Ideally, different alternative restoration plans could be developed by making different combinations of these components.  To put this into perspective, if the team were to evaluate all the possible combinations of these components, the number of possible comprehensive plans would be approximately 6.72x10³⁰.   Therefore, the Restudy team developed a process to allow the team to select a smaller number of plans for the evaluation phase.  Because screening was limited and the nature of assumptions made during the screening process are generalized, components were not eliminated from further consideration at this point.  Rather, the screening process organized and prioritized the components for consideration in alternative plans. Clearly, more detailed evaluations were necessary before the Restudy could recommend any particular component be included in, or excluded from, the Comprehensive Plan.

 

Screening is a process for comparing alternative components or plan features against certain criteria.  The screening process at this stage of the study provided a basis for identifying relative differences between components.  The information gathered during the screening process was used to combine components into alternative comprehensive plans.  The alternatives then underwent a more rigorous evaluation utilizing a system-wide hydrologic model and a suite of ecologic and water quality models.

The screening process involved three sets of screening criteria, including: hydrologic modeling using the Everglades Screening Model, a cost effectiveness analysis, and findings from the Lower East Coast Regional Water Supply Planning process, which utilized the South Florida Water Management Model for system-wide evaluations.  Best professional judgment and findings from other studies such as the L-28 Feasibility Study and the Water Preserve Area Land Suitability Analysis also provided a basis from which screening conclusions were drawn.

Comprehensive Plan Development

With the help of new technology and increased agency partnerships, the multi-agency Restudy Team and the public used the Internet to develop and evaluate alternative plans for the Comprehensive Review Study.  The Internet effort did not replace the legal requirement under the National Environmental Policy Act for public review and comment.  In the fall of 1998, traditional public workshops were held upon completion of the draft feasibility report.

 

Due to the large number of people potentially affected and the complexity of the south Florida ecosystem, the Corps and its multi-agency study team partners seek input from as broad a base as possible.   The use of the Internet helped to reach as many interested parties as possible and get their input on the alternatives as they were formulated.

 

Between September  1997 and May 1998, numerous alternative comprehensive plans were formulated and evaluated.   Each plan developed was judged on how well it met study goals.  This was done by comparing the alternative plans against the Existing Condition and the Future Without-Project Condition for a range of hydrologic performance measures.

 

The Plan was finalized in April, 1999 after agency review and extensive public comment. The Chief of Engineers report was dated June 22, 1999. Views from the State of Florida, the South Florida Water Management District, the South Florida Regional Planning Ccouncil, the Department of the Interior, the U. S. Enviornmental Progection Agency, the Department of Commerce, the Natural Resources Conservation Service, and the Department of Health and Human Services were incorporated and the Plan was submitted to the President in July, 1999.

 

CERP: The Plan in Depth - Part 4
Four Factors: Quality, Quantity, Timing & Distribution

For the restoration of the Everglades to be successful, four factors must be in place: Quantity, Quality, Timing and Distribution. These factors are rolled into one key ingredient, water. Water is the key to reviving a dying ecosystem.

1. Quantity:
   Increase the total spatial extent of natural areas
2. Quality:
   The quality of the water must be healthy for the environment.
3. Timing:
   The timing of water held and released into the ecosystem will be modified to mimic natural flow patterns.
4. Distribution:
   Water will be captured to distribute to the ecosystem, as well as urban and agricultural users in the future.

The Plan's seven principle features will allow for these factors to be effective.

 

CERP: The Plan in Depth - Part 5
Implementation Principals and Guidelines

Implementation of the Comprehensive Everglades Restoration Plan will take place over 30 years. The implementation Principals will ensure that Plan is carried out in a manner consistent with the goals and objectives of the Restudy effort.

The following Principals and guidelines will be used to ensure successful implementation:

• Expedite ecosystem restoration benefits by improving and expediting projects whenever possible.
• Use a flexible approach to implementation. Flexibility allows for further improvements as we refine individual projects and obtain new information.
• Allow for independent scientific peer review and a process for identifying and resolving uncertainties.
• Implement ongoing projects such as Modified Water Deliveries Project and the C-111 Project, which include a number of components that can be quickly implemented as part of the ongoing restoration efforts.
• Maintain ecosystem focus by conducting analyses and evaluations to measure the overall contribution to system-wide goals.
• Ensure responsible use of the financial investment made by all levels of government is used efficiently and effectively.
• Commit to continue to provide urban and agricultural users with needed water while new facilities are under construction.
• Ensure that the components of the Plan are located, designed and operated consistently with existing and future water quality protection criteria and restoration targets
• Continue to involve stakeholders and the public in the decision making process.
• Address technical uncertainties through pilot projects and more detailed analyses by development of contingency plans.

For more detailed information on the Principals and guidelines see below:

Expedite Ecosystem Restoration Benefits 

We recognize that this is an ecosystem in peril, and time is of the essence. Implementation of the restoration as scheduled will provide substantial hydrologic, water quality, and ecological benefits to the ecosystem. Throughout the implementation phase we will improve and expedite projects whenever possible. State of Florida also has expedited projects to realize benefits earlier when possible.

Use a Flexible Approach to Implementation

The Comprehensive Plan’s flexibility allows for further improvements as we refine individual projects and obtain new information. The Plan does not provide all the answers – no plan could. It does, however, contain an aggressive adaptive assessment strategy that includes independent scientific peer review and a process for identifying and resolving uncertainties. This approach provides an efficient way to allow restoration to move forward now and for the agencies to make necessary mid-course corrections. Periodic updates of both the Comprehensive Plan and the Implementation Plan will allow us to achieve the highest levels of restoration as rapidly as possible. We will ensure that the implementation process provides the flexibility needed for restoration success.

Integrate Comprehensive Plan Features with ongoing Projects

Ongoing restoration projects, such as the Modified Water Deliveries Project and the C-111 Project, are integrally linked with the Comprehensive Plan. These ongoing projects will provide a substantial down payment towards restoration of the Everglades. The Comprehensive Plan includes a number of components that can be efficiently and quickly implemented as part of these ongoing projects. We will integrate implementation of the Comprehensive Plan with ongoing restoration projects.

Science Advisory Panel

Independent scientific peer review is an important part of the overall restoration process. The South Florida Ecosystem Restoration Task Force entered into a cooperative agreement with the National Academy of Science to establish a peer review panel.

 

The U.S. Army Corps of Engineers, South Florida Water Management District, and U.S. Department of the Interior sponsor a biennial report providing an independent external analysis to assist in monitoring program progress, identify programmatic and methodological deficiencies, and suggest improvements to strategies and processes to further the goals of Everglades restoration. This reporting was authorized by the Water Resources Development Act of 2000. The National Research Council (NRC)'s Committee on Independent Scientific Review of Everglades Restoration Progress, (CISRERP) completed the report in 2006 and another in 2008. The NRC is the principal operating agency of the National Academy of Sciences (NAS) and the National Academy of Engineering. As part of the National Academies, these private, nonprofit institutions provide science and technology policy advice under congressional charter with team's of national experts.

Maintain Ecosystem Focus

The Comprehensive Plan was developed and evaluated based on its contribution to restoration of the south Florida ecosystem. As individual components or groups of components are further planned and designed, we will conduct analyses and evaluations to measure the overall contribution to system-wide goals. We will ensure that project components are developed to provide the maximum contribution to restoration of the entire south Florida ecosystem.

Ensure Responsible use of Fiscal Resources

Because of the large size of the area, the Plan is "conceptual" in nature. More detailed technical studies and designs must be accomplished to ensure that each project has the best design to achieve its intended purpose and that the project is shown to be a sound investment. Implementation of the Comprehensive Plan represents a substantial financial investment by all levels of government. We will ensure that fiscal resources are used efficiently and effectively.

Provide Assurances to Beneficiaries

Water links the natural system with the urban and agricultural sectors in south Florida. To a great extent, the ability to sustain the region’s natural resources, economy, and quality of life depends on the achievement of the Plan’s goals toenhance, protect, and better manage the region’s water resources. New storage facilities will eventually lessen urban and agricultural user’s dependence on the natural system for water supply. As components are completed, more water will become available for the ecosystem. We are committed to ensuring that the environmental benefits continue to flow to the ecosystem. As we implement the Plan, we are also mindful of our commitment to continue providing urban and agricultural users with needed water while new facilities are under construction.

Design for Water Quality Improvement  

The Comprehensive Plan includes a number of features to protect and improve the quality of water in natural areas. There are also opportunities to improve water quality further as part of the design process for the components of the Comprehensive Plan. During implementation, we will ensure that the components of the Plan are located, designed, and operated consistently with existing and future water quality protection criteria and restoration targets. The recommended study to develop a comprehensive integrated water quality plan will examine remaining water quality needs for the entire ecosystem.

Continue the Inter-Agency, Inter-Disciplinary Approach

The effort to develop the Comprehensive Plan has been an open, collaborative process involving federal and state agencies, local governments and tribal participation. This inter-agency, inter-disciplinary process ensured that the Plan evolved from a healthy diversity of backgrounds, interests, and agency missions. The flexibility and openness of this process will continue during implementation to allow for continual dialogue and improvements to the Plan.

Continue to Involve Stakeholders and the Public  

Outreach and public involvement have been an integral part of the development of the Comprehensive Plan. The public and stakeholders have played a key role in getting to a plan that supports a sustainable south Florida. Through the process afforded by the National Environmental Policy Act, we will continue to seek this input during the implementation phase of each feature.

Develop Contingency Plans as Appropriate  

We recognize that there are technical and cost uncertainties associated with some of the major components included in the Comprehensive Plan such as aquifer storage and recovery. As each component proceeds towards actual implementation, technical uncertainties will be addressed through pilot projects and more detailed analyses. We will develop contingency plans as necessary during the implementation phase for appropriate components and technologies to ensure that the benefits of the plan are obtained.

 

 

CERP: The Plan in Depth - Part 6
The Use of Sound Science

• Sound science has always been and continues to be the basis for the Comprehensive Plan
• The Plan was developed by an interdisciplinary team of biologists, ecologists and others with extensive experience in the south Florida ecosystem
• Peer review is an integral part of the Plan and will be used to validate the scientific underpinnings of the Plan and point out needed adjustments
• State-of-the-art scientific and engineering models were used throughout the study process

 

Sound science has always served as the basis for restoration of the south Florida ecosystem. In 1992, when Congress authorized the U.S. Army Corps of Engineers to review the Central and Southern Florida Project, an interdisciplinary team of individuals with extensive research experience in the south Florida ecosystem began developing the Comprehensive Plan. The team included biologists, ecologists, economists, engineers, geographic information system specialists, hydrologists and planners from a number of federal, state, tribal and local government agencies, and numerous representatives from the academic world. Throughout the study process, the team used the best available data and state-of-the-art scientific and engineering methodologies and models.

Interdisciplinary Teams

More than 100 scientists and resource specialists developed the physical and biological performance measures and targets used to evaluate and design the Comprehensive Plan. Through a workshop process, they developed a set of conceptual ecological models for each of the 15 major natural landscape features in south Florida. Each model links the major effects of human beings to changes in nature. For example, how does drainage of wetlands affect alligators, wading birds and pink shrimp? The models show the critical linkages between the changes to hydrology and the effects on alligators, wading birds or pink shrimp, and suggest the most appropriate indicators and measures for each landscape.

 

The team analyzed each alternative on the basis of how well performance measure targets had been met, and then identified areas where the alternatives needed to be improved. This information was used to develop solutions for the areas of deficiencies.

 

A new series of multi-disciplinary workshops are underway to 1) refine the existing performance measures; 2) create additional biological measures; and 3) broaden the review process for the measures and targets. This effort is led by the Restoration, Coordination and Verification (RECOVER) Team. It is a system-wide evaluation and assessment team responsible for determining the overall regional contributions provided by individual projects. In addition, the RECOVER team will be responsible for updating the Comprehensive Plan as more detailed and refined information becomes available.

Scientific and Engineering Models

The primary models used in the development of CERP - the Natural System Model and the South Florida Water Management Model - represent the best understanding of the hydrology of both the pre-drainage and current C&SF Project system. The Across Trophic Level System Simulation, a state of the art model, was developed to predict animal species responses to hydrologic changes. The South Florida Water Management Model and the Natural System Model have undergone peer review.

Science Advisory and Review Panel

Independent scientific peer review is an important part of the overall restoration process. The South Florida Ecosystem Restoration Task Force entered into a cooperative agreement with the National Academy of Science to establish a peer review panel.

 

The National Research Council (NRC)'s Committee on Independent Scientific Review of Everglades Restoration Progress, (CISRERP) has been conducting and publishing a biennial report since 2006.

 

 

CERP: The Plan in Depth - Part 7
Evaluation

For the plan to be a success, evaluations must be conducted to determine whether or not components of the plan are providing their intended benefits.

 

Between September 1997 and May 1998, alternative comprehensive plans were formulated and evaluated. Each plan developed was judged on how well it met study goals This was done by comparing the alternative plans against the Existing Condition and the Future Without-Project Condition for a range of hydrologic performance measures using primarily the South Florida Water Management Model.

 

Several tools are used in this evaluation process. For example, ecologic and water quality models were used to study many aspects of the plan. To view what tools are used to study the plan, please visit the following links for more information:

 

South Florida Water Management Model River of Grass Evaluation Methodology (ROGEM) Across Tropic Level System Simulations (ATLSS) Everglades Landscape Model (ELM) Everglades Water Quality Model Lake Okeechobee Water Quality Model Bill Walker's Performance Measures for Stormwater Treatment Areas

Related Links:

• South Florida Water Management Model
• River of Grass Evaluation Methodology (ROGEM)
• Across Tropic Level System Simulations (ATLSS)
• Everglades Landscape Model (ELM)
• Everglades Water Quality Model
• Lake Okeechobee Water Quality Model
• Bill Walker's Performance Measures for Stormwater Treatment Areas

CERP: The Plan in Depth - Part 8
Benefits of the Plan

The Comprehensive Everglades Restoration Plan will provide multiple benefits to the south Florida ecosystem, as well as the economy.

With the implementation of the plan, improvements will be made by:

• Restoring natural flows of water, water quality and hydroperiods
• Improving the health of more than 2.4 million acres of the south Florida ecosystem, including the Everglades and Biscayne National Park
• Improving hydrologic conditions will result in Lake Okeechobee once again, becoming a healthy lake
• Improving native flora and fauna, including threatened and endangered species
• Ensuring a reliable, adequate supply of fresh water for use by all – the environment, urban and agriculture
• Maintaining flood protection set in place by the C&SF project.
• Creating wide-ranging economic benefits, not only for Florida, but the entire nation

For more detailed information on the above benefits see below:

Ecosystem Restoration

The Comprehensive Plan will restore, protect and preserve a natural treasure - the greater Everglades ecosystem. This national resource is unlike any other ecosystem in the world. Immediate actions are necessary to maintain and restore this extraordinary ecosystem. The Comprehensive Plan affords this opportunity to preserve an Everglades legacy for generations to come.

 

The Plan's focus has been on recovering critical ecological features of the original Everglades and other parts of the ecosystem. The Plan will restore natural flows of water, water quality, and hydroperiods. The removal of more than 240 miles of internal levees and canals will improve the health of more than 2.4 million acres of the south Florida ecosystem, including Everglades and Biscayne National Park. The restoration of hydrologic conditions of the original natural areas of the south Florida ecosystem will result in Lake Okeechobee once again becoming a healthy lake. Major benefits will be provided to the Caloosahatchee and St. Lucie estuaries and Lake Worth Lagoon. The Plan will also improve fresh water deliveries to Florida and Biscayne bays. The greater Everglades ecosystem will be much healthier than it is today. Improvements to native flora and fauna, including threatened and endangered species, will occur as a result of the restoration of the hydrologic conditions.

Capturing and Storing Water

The Plan's predominant feature is water storage. The Plan captures most of the average 1.7 billion gallons of water a day discharged to the ocean. This water will be stored in more than 217,000 acres of new reservoirs and wetlands-based treatment areas, and about 300 underground Aquifer Storage and Recovery (ASR) wells. These features vastly increase the amount of water storage available in south Florida. The Plan will ensure a reliable, adequate supply of fresh water for all use sectors - the environment, urban and agriculture. Approximately 80 percent of the new water captured by the Plan will go to the environment and 20 percent will be used to enhance urban and agricultural supplies.

Flood Protection

Florida is a low-lying, flat, wet state, and is prone to flooding. Today, the C&SF Project provides flood protection on a regional basis for south Florida, supported by many locally operated canal networks. The Comprehensive Plan will maintain, and potentially improve, this important flood protection element of the C&SF Project.

Economic Benefits

Implementation of the Comprehensive Plan will result in wide-ranging economic benefits, not only for Florida, but the entire nation. Recreation, tourism, agriculture and commercial fishing industries are key components of the Florida economy, restoration of the south Florida ecosystem will help make these industries stronger and more sustainable. These industries also make a significant contribution to the national economy. Visitors from around the country, indeed from around the world, travel to the Everglades, Florida Bay and the many other natural areas of south Florida. Fish and seafood harvested from our coastal waters are shipped to markets across the country and the world.

These Multiple Benefits Will Make South Florida Sustainable

Without intervention, the region will experience continued degradation (frequent water shortages) of the Everglades, coastal estuaries, fisheries, and other natural resources; and more frequent flooding. Implementation of the Plan will result in the recovery of healthy, sustainable ecosystems in south Florida. It is a plan that will lead to a strong economy and a much-improved environment for people and the plants and animals that depend on the natural system for their survival.

 

The Comprehensive Plan contains components essential to achieving this goal. No other plan, especially one on a smaller scale or one lacking appropriate balance between ecosystem restoration and future urban and agricultural water supply objectives, would achieve similar success.

 

 

The Plan in Depth - Part 9
Implementation of the Plan

Implementation of the Plan Recognizes Ecosystem Restoration as the Overarching Objective

The ultimate success of the Comprehensive Plan will be a reflection of its implementation over more than 20 years. Simply stated, the hard work lies ahead in terms of restoring this important ecosystem. Successful implementation will require a well-coordinated strategy that, like the Plan itself, recognizes that first and foremost, ecosystem restoration is the overarching objective.

 

This objective is the principal driving force behind the sequence and pace at which specific project features are undertaken.  Implementation will be guided by a set of Principals.

 

As the plan is implemented, the pattern of ecological degradation that has been occurring in the natural systems for many decades will begin to be reversed. Moving forward will continue to depend on project PIR completion for authorization and ultimately appropriations and funding.

The Restoration Effort Began with CERP Plan authorization in Water Resources Development Act of 2000

Through the Water Resources Development Act (WRDA) of 2000, Congress has authorized an initial $1.4 billion package of projects that will begin implementation of the Comprehensive Plan. The initial authorization includes:

1. Four pilot projects
2. Ten specific project features
3. A programmatic authority through which smaller projects can be more quickly implemented.

Authorization for the remaining features of the Plan will be requested in subsequent Water Resources Development Act proposals beginning in 2002.

Pilot Projects will Address Technical Uncertainties

Prior to full-scale implementation, six pilot projects, costing about $97 million, will be built to address uncertainties with some of the features in the Comprehensive Plan. These projects include aquifer storage and recovery in each geographic region that the technology is proposed; in-ground reservoir technology in the lake belt region of Miami-Dade County; levee seepage management technology adjacent to Everglades National Park; and advanced wastewater treatment technology to determine the feasibility of using reuse water for ecological restoration.

 

Initial set of construction features will provide immediate system-wide water quality and flow distribution benefits and use already purchased land. Ten projects and the adaptive assessment program, totaling $1.1 billion (Oct 1999 price level), were recommended for initial authorization. These projects were selected because they can provide system-wide water quality and flow distribution benefits to the ecosystem as well as opportunities to integrate these features with other ongoing federal and state restoration programs. For example, if part of the initial authorization, modifications to Tamiami

Trail to improve flow distribution could be accomplished more quickly under the ongoing Modified Water Deliveries Project. In addition, the South Florida Water Management District and the U.S. Department of the Interior have already purchased lands, such as the Talisman lands, for a number of Plan components. Authorization of projects that use lands already purchased will ensure that these lands are utilized for restoration as soon as possible.

Programmatic Authority will Expedite Implementation

Similar to the authorization received in 1996 for Everglades Ecosystem Restoration Projects (Critical Projects) these projects would "produce independent, immediate, and substantial restoration, preservation and protection benefits," and expedite some components of the Plan.

 

Programmatic authority was limited to those individual 27 components of the original Comprehensive Plan having a total project cost of $70 million or less (maximum federal share of $35 million per project). However, in WRDA 2000 this was reduced that to $50 million for each project (maximum federal share of $25 million per project) including 20 components from the Plan (not to exceed a total of $206,000,000 Federal and non-Federal). Components such as the Loxahatchee National Wildlife Refuge Internal Canal Structures, Melaleuca Eradication and Other Exotic Plants, and the Florida Keys Tidal Restoration projects could be accomplished under this programmatic authority.

The Remainder of the Plan’s Features to be Included in Future Water Resources Development Acts

Congress will be asked to authorize the remaining components of the Comprehensive Plan as more detailed planning is completed. At a cost of approximately $6.2 billion, the 26 remaining features will undergo additional studies and analysis before authorization is sought from Congress. Many of these project components are dependent on the results of the proposed pilot projects such as aquifer storage and recovery features and the in-ground reservoirs in Miami-Dade County. Based on the implementation schedule, project reports will be submitted to Congress periodically through the year 2014.

 

CERP: The Plan in Depth - Part 10
The Development Team

Development of the Plan to Restore America's Everglades was led by the U.S. Army Corps of Engineers, Jacksonville District and the South Florida Water Management District, located in West Palm Beach, Florida.

 

Many other federal, state, tribal and local agencies were active partners in developing the Comprehensive Plan and that partnership will continue through the implementation of the Plan.  Those agencies are listed below.

 

The Process - Lessons In Team Planning.  A paper written by Kenneth Orth (USACE) and Agnes McLean (SFWMD), May 1999 (PDF file download)

Department of the Army

US Army Corps of Engineers
Office of the Assistant Secretary of the Army for Civil Works
US Department of Agriculture
Agricultural Research Service
Natural Resources Conservation Service

US Department of the Interior

US Fish and Wildlife Service
US Geological Survey / Biological Resources Division
Everglades National Park
Everglades Research and Education Center
Biscayne National Park Big Cypress National Preserve

US Department of Commerce

National Oceanic and Atmospheric Administration
National Marine Fisheries Service
National Ocean Service Office of Oceanic and Atmospheric Research

US Environmental Protection Agency

Miccosukee Tribe of Indians of Florida

Seminole Tribe of Florida

 

State of Florida

Department of Agriculture and Consumer Services
Department of Environmental Protection
Florida Fish & Wildlife Conservation Commission
Governor's Commission for the Everglades
Governor's Office
South Florida Water Management District

Local Agencies

Broward County Department of Natural Resource Protection
Broward County Office of Environmental Services

Lee County

Martin County

Miami-Dade County

Department of Environmental Resources Water and Sewer Department

Palm Beach County

Palm Beach County Environmental Resource Management    

Academic Institutions

Florida International University
University of Miami
University of Tennessee