STATEMENT
OF ANN R. KLEE
COUNSELOR
TO THE SECRETARY
DEPARTMENT
OF THE INTERIOR
BEFORE THE
COMMITTEE ON ENVIRONMENT AND PUBLIC WORKS
UNITED
STATES SENATE
SEPTEMBER
13, 2002
Mr. Chairman, my name is Ann Klee. I am counselor to Secretary of the Interior
Gale Norton and advise her on a wide range of natural resources and
environmental issues, including the restoration of the Everglades. Additionally, Secretary Norton appointed me
to serve as Chair of the South Florida Ecosystem Restoration Task Force, an
interagency and intergovernmental entity established by Congress in the Water
Resources Development Act of 1996 to coordinate the restoration of the south
Florida ecosystem among federal, state, tribal and local governments and the
public.
I am
pleased to testify before the committee to discuss the important progress we
are making to restore the Everglades. I
would like to recognize the Committee=s leadership in authorizing the
Comprehensive Everglades Restoration Plan (CERP or Comprehensive Plan) in the
Water Resources Development Act of 2000 (WRDA 2000). Since that time, we have worked diligently to implement the
assurances provisions of WRDA 2000 and undertake other important on-the-ground
work in Florida to move us closer to our Everglades restoration goals.
I want to
underscore the Department of the Interior=s (Department) commitment to
Everglades restoration. It is one of
our highest priorities. The National
Park Service, the Fish and Wildlife Service and the United States Geological
Survey will continue efforts to preserve and improve natural habitat; protect
and recover endangered and threatened species; and obtain the best available
science to inform our decision-making.
As steward of nearly 50 percent of the remaining Everglades, a
successful restoration program is an absolute necessity if future generations
of Americans are to experience the wonder of one of the world=s greatest
natural resources.
The South
Florida Ecosystem Restoration Task Force has defined three broad goals for
restoration of the Everglades: (1) getting the water right: that is, restoring
a more natural water flow to the region while providing adequate water
supplies, water quality and flood control; (2) restoring, preserving and
protecting natural habitats and species; and (3) fostering compatibility of the
built and natural systems. I would like
to discuss how Interior=s efforts during the last year are
contributing to the collective efforts that are necessary to achieve these
goals.
Implementing
the Comprehensive Everglades Restoration Plan
Since its enactment, we have worked closely
with our federal and state partners to begin implementation of the
Comprehensive Plan and complete the assurances requirements of WRDA 2000. As you know, at the beginning of this year,
the United States and the State of Florida executed a binding and enforceable
agreement to ensure that water captured by implementation of the Comprehensive
Plan will be reserved by the State from consumptive use consistent with
information developed in the Project Implementation Report, indicating
appropriate timing, distribution, and flow requirements sufficient for the
restoration of the natural system.
The agreement, signed by President George
Bush and Governor Jeb Bush, represents a significant and lasting step toward
achieving the goals and objectives of the Comprehensive Plan to supply water
for the environment and other uses. The
agreement requires the state to reserve water from consumptive use after the
Army Corps of Engineers issues AProject Implementation Reports@ or APIRs.@ These PIRs identify the
appropriate quantity, timing and distribution of water, on a project specific
basis, that is necessary to restore the natural system. In addition, the State agrees to manage its
water resources so that the water produced by implementation of the Comprehensive
Plan will be available to restore the natural environment as promised. Finally, the State will monitor and assess
the continuing effectiveness of the reservations to achieve the goals and
objectives of the Comprehensive Plan.
On the federal side of the agreement, the federal government will
propose appropriations to implement its share of the Comprehensive Plan;
initiate authorized project planning and design; and develop information to
support the adaptive assessment and management process. On a parallel track, the Department notes
that the South Florida Water Management District (District) is moving quickly
to develop the policies and procedures that are necessary at the state level to
implement the water reservation and assurances requirements for the
Comprehensive Plan. We are encouraged
by this progress.
In addition to these important steps, the
programmatic regulations are well on their way toward completion with the
official public comment period on the proposed draft ending on October 1. We appreciate the Army Corps= efforts to provide for a large amount of
public input into the development of the draft regulations through a series of
public meetings, including meetings of the Task Force, and the release of an
initial draft of the regulations late last year. The Army Corps= process reflects, in our view, a successful effort to achieve the
necessary consultation and communication among all the parties that is
necessary to achieve the conservation results required by WRDA 2000. As Secretary Norton stated earlier this
year, long-term collaboration is the key to the success of our Everglades
restoration efforts. The process used
to develop the draft programmatic regulations is a good start toward the
collaborative effort that will be necessary to implement the Comprehensive Plan=s individual project features.
As you know, WRDA 2000 requires the Secretary
of the Interior and the Governor of Florida to concur in the issuance of the
final programmatic regulations.
Generally, we believe the draft regulations now undergoing public review
are consistent with WRDA 2000 requirements, which include: (1) providing for
the development of projects and project related documents to ensure achievement
of the goals and objectives of the Comprehensive Plan; (2) integrating new
information into the Comprehensive Plan through principles of adaptive
management; and (3) ensuring the protection of the natural system.
Key provisions of the draft programmatic
regulations ensure both a strong Departmental voice in the restoration process,
as well as the necessary interagency collaboration. Provisions
requiring concurrence of the Secretary of the Interior and the Governor include
the following six Army Corps guidance memoranda: (1) the format and content of Project Implementation Reports
(PIRs); (2) instructions for Project Delivery Team evaluation of PIRs; (3)
guidance for system-wide evaluation of PIR alternatives; (4) the content of
operating manuals; (5) directions for RECOVER (interagency scientists)
assessment activities; and (6) instructions in PIRs to identify the appropriate
quantity, timing and distribution of water to be dedicated and managed for the
natural system. Additionally, the
Department has a strong role supporting interagency science efforts in
implementing the Comprehensive Plan.
The Department serves as a member of the RECOVER leadership group and
co-chair of 4 of the 6 RECOVER sub-teams that have been established to date,
and the draft regulations propose that this role continue. Overall, the Department=s role
reflects the partnership approach of WRDA 2000 and ensures that our technical
expertise will be incorporated early in the planning process.
In addition
to having a strong role in developing the guidance memoranda, the Department
will have a concurring role in developing the pre-CERP base line, which will
establish the hydrologic conditions in the South Florida ecosystem that existed
on the date of enactment of WRDA 2000.
Establishing a pre-CERP baseline will be the basis for calculating
future project benefits, thereby ensuring achievement of restoration
objectives. The pre-CERP baseline is
also integral to implementing WRDA 2000's savings clause requirements, which
protect a number of different legal sources of water, including legal sources
for Everglades National Park and fish and wildlife.
Lastly, to
ensure the protection of the natural system, the Department, the Army Corps,
and the State of Florida will jointly establish interim goals. Interim goals are key to monitoring and
evaluating restoration success. The
draft regulations propose a process where RECOVER (interagency scientists) will
develop interim goals as measurable hydrologic targets, anticipated ecological
responses and water quality improvements.
Next, the draft regulations propose that the Department, the Army, and
the State of Florida execute an interim goals agreement to establish an initial
suite of interim goals, with public notice and comment, by December 2003. This approach ensures the most recent and
best available science will be used to develop the interim goals. We believe it is appropriate for RECOVER to
continue its update to the performance measures for Everglades restoration and,
in doing so, consider all available information, including updated hydrologic
information and models and ecological baseline data.
Overall,
the draft programmatic regulations lay
a solid regulatory foundation to guide the implementation of the Comprehensive
Plan over the next four decades.
Further, the draft regulations provide measures of accountability to
safeguard the federal taxpayer=s investment in a restored Everglades.
The Army Corps has strived to develop regulations that provide agencies
with the necessary flexibility to adapt to changing circumstances and
principles of adaptive management embraced by the Comprehensive Plan, while at
the same time prescribing procedures to ensure consistency of restoration objectives
among all the components of the Comprehensive Plan. Together with the binding agreement between the United States and
the State of Florida, the programmatic regulations represent a complete package
of legal assurances to achieve a restored Everglades. We
look forward to continuing our collaboration with the Army Corps through to the
final issuance of the regulations.
Efforts to preserve and protect natural
habitat
In addition to supporting measures to
increase water supplies for the environment, the Department is actively
implementing other actions to preserve and protect Everglades habitat.
These include acquiring state and federal
lands for habitat protection and improvement and eradicating invasive
exotics. I am pleased to report that we
have nearly completed acquiring the lands for the East Everglades expansion
area of Everglades National Park, an effort that began over a decade ago. Once that acquisition is fully complete, the
park will begin updating its general management plan to ensure the permanent
protection and preservation of this important resource.
Earlier this year we announced an agreement
in principle to acquire the mineral rights under Big Cypress National Preserve,
Florida Panther National Wildlife Refuge, and Ten Thousand Islands National
Wildlife Refuge from Collier Resources Company. This action will ensure long term conservation of the western
Everglades and safeguard the $8 billion taxpayer investment in the Comprehensive
Plan by avoiding the surface disturbance that would accompany oil and gas
development. The acres affected by the
agreement are home to several endangered and threatened species, including the
Florida panther, American crocodile, red-cockaded woodpecker, and manatee. We are presently working out the details of
a final acquisition agreement, which we hope to complete very soon.
Equally important to our own efforts is our
financial partnership with the South Florida Water Management District
(District) to acquire lands for Everglades restoration purposes. Land is the single biggest physical
constraint to the implementation of the Comprehensive Plan, as the District
must acquire about 110,000 acres over the next five years at an estimated cost
of $920 million, or $184 million per year.
Since 1996, the Department has contributed approximately $320 million to
the District for the purpose of acquiring high priority lands for the
Comprehensive Plan, including the Talisman and Berry Groves acquisitions. Later this month, I expect Secretary Norton
to approve another $15 million grant to the District for the purchase of high
priority projects supporting the Comprehensive Plan, including the Indian River
Lagoon and the East Coast Buffer/Water Preserve Areas. The Indian River Lagoon features are
intended to reduce the impact of watershed runoff to estuaries by reducing the
number and frequency of high volume discharges from Lake Okeechobee through
drainage canals and restoring historic flow patterns of the river. Similarly, the East Coast Buffer is
important to establishing a lineal transition between Everglades habitats to
the west and urban developed areas to the east.
Another significant milestone in our ongoing
effort to preserve and protect habitat was the signing of a new license
agreement with the District for the A.R.M. Loxahatchee National Wildlife
Refuge. The new license agreement,
which was completed in July, includes additional commitments to take aggressive
action to reduce infestations of Old World climbing fern, melaleuca, and other
invasive exotic species. Efforts to
eradicate invasive exotics on other Interior-managed lands continue.
Protection and recovery of threatened and
endangered species
Over the last decade the Fish and Wildlife
Service has been actively cooperating with other federal, state, tribal and
local agencies and expert scientists in ensuring protection for the 69
threatened and endangered species that make the Everglades their home. The Fish and Wildlife Service is employing a
landscape-level approach to reverse the decline of threatened and endangered
species and implement the steps necessary to conserve both the species and the
habitat upon which they depend. This
approach is exemplified by a comprehensive recovery initiative, called the Multi-Species
Recovery Plan for the Threatened and Endangered Species of South Florida
(MSRP).
Implementation of the MSRP emphasizes
multi-party cooperation and the use of the best available science; it has
already benefitted numerous species.
For example, in cooperation with the Florida Keys community, the Fish
and Wildlife Service established the National Key Deer Wildlife Refuge to
protect habitat for the endangered Key deer.
Using additional funds supplied by the Department earlier this year, the
Service will translocate one deer population from the core area on Big Pine Key
to achieve the MSRP goal of three stable populations. If successful, this effort will result in the reclassification of
the deer from endangered to threatened.
In conjunction with this effort, the Service is cooperating in the
preparation of a Habitat Conservation Plan (HCP) for the Key deer which will
provide added protection for this species and certainty to the residents of the
Florida Keys for building permits, infrastructure improvements and road
construction.
In another example, the Service has been
working in cooperation with expert scientists to augment the Keys population of
the endangered Schaus swallowtail butterfly.
This effort includes a captive breeding program, habitat preservation
initiative, and the use of Safe Harbor agreements. These agreements are established in cooperation with private land
owners to enhance habitat for the species while protecting the private
landowners from any increase in regulatory burden from increased numbers of
endangered species on their property.
Other threatened and endangered species
conservation efforts include development of large-scale HCPs for the
conservation of the Florida scrub-jay and three species of sea turtles in
cooperation with Indian River and Sarasota counties and a landscape approach to
conservation of the endangered Florida panther utilizing a recognized panel of
experts. To date, the panel has
identified all land in south Florida south of the Caloosahatchee River that is
essential for the continued conservation of panthers in this region, as well as
a landscape linkage to provide for population expansion. As a result of this effort, the Service is
working with the State and private partners to develop conservation incentives
for landowners.
Obtaining the best available science to guide
management decisions
The Department=s bureaus have been long-term partners with other federal and state
agencies, tribes, and local governments in developing water-related, geologic,
biologic, land use and mapping studies contributing to the long-term viability
and restoration of the Everglades. As
the restoration effort proceeds, we have an obligation to ensure that we use
the best available science in managing our programs and resources. Fiscal accountability also demands that we
focus our science on the questions that need to be answered to achieve
Everglades restoration goals. We are
taking a number of actions to achieve these results. For example, earlier this year the National Park Service, Fish
and Wildlife Service and the U.S. Geological Survey entered into a memorandum
of understanding to integrate and facilitate coordination of agency science
programs to obtain the best available research products and monitoring and
assessment tools responsive to the needs of our land management agencies. To facilitate implementation and
coordination of our science, the U.S. Geological Survey will be leading a
multi-agency and tribal Science Coordination Council consisting of senior
managers from each relevant bureau within the Department, the State, and the
tribes. The council will be responsible
for identifying priority science-related management questions and for ensuring
science coordination with our multiple greater Everglades restoration partners.
In addition, the U.S. Geological Survey is
developing an overall science plan supporting restoration of the greater
Everglades ecosystem. The science plan
will improve our ability to manage our science program in concert with our
federal and state partners. We expect
to have a draft of this science plan available for review very soon.
Most importantly, we are committed to
implementing the independent science provisions of WRDA 2000. Discussions are underway at the federal
level and we look forward to working with our state partners and the Task Force
to set up the independent science review panel required by WRDA 2000.
Modified Water Deliveries Project
As the Committee is aware, WRDA 2000 requires
completion of the Modified Water Deliveries project before construction funds
are appropriated for certain Comprehensive Plan elements, including the Water
Conservation Area 3 Decompartmentalization project. As envisioned by Congress in the 1989 Everglades National Park
Protection and Expansion Act, the Modified Water Deliveries Project is crucial
to restoring more natural water flows for the 110,000 acres of East Everglades
habitat that were added to Everglades National Park, thereby ensuring the
ecological integrity and long-term viability of park resources. The completion of the Modified Water
Deliveries project is on hold due to litigation. Completion of that project will safeguard the federal taxpayers= $104 million investment in acquiring the
East Everglades, as well as the $160 million expended to date to implement the
Modified Water Deliveries project, and is consistent with future actions to be
undertaken under the Comprehensive Everglades Restoration Plan.
South Florida Ecosystem Restoration Task
Force
Finally,
speaking as Chair of the South Florida Ecosystem Restoration Task Force, I
would like to briefly describe how the Task Force is contributing to the
restoration effort. This month the Task
Force will be publishing its revised Strategy for Restoration of the South
Florida Ecosystem and Biennial Report to Congress, the second of such
reports. I am pleased to provide the
Committee with pre-publication copies of this document, which updates
information submitted by the Task Force in July 2000 and describes the
restoration and coordination efforts of the Task Force member entities.
During the
last year, the Task Force provided a constructive forum to discuss development
of the Army Corps= programmatic regulations. We devoted several Task Force meetings in
South Florida and Washington, D.C. to key elements of the regulations,
including interim goals and the pre-CERP baseline. Future Task Force meetings will focus on the independent
scientific review required by WRDA 2000, continued development of our land
acquisition strategy, and flooding issues.
The Task Force provides an effective forum for candid discussions of
differing views. It is my hope that the
Task Force will continue to provide a forum for collaborative decision-making
and public input on Everglades restoration.
In closing,
Mr. Chairman, I believe we have an historic opportunity before us to save a
national treasure for future generations, while also ensuring south Florida=s future
viability. Certainly, this is an
environmental project of unprecedented scope and scale. Congress itself recognized the uncertainties
involved in such an undertaking. The
Comprehensive Plan envisions the use of new technologies; equally significantly,
it provide for the application of adaptive management to address those
uncertainties.
We will
face many challenges over the next several decades as we implement the
Comprehensive Plan, but we are well positioned to succeed. First, we have a high degree of
collaboration among the State of Florida, the federal government, and concerned
citizens. We have forums, including the
Task Force and the South Florida Water Management District=s Water
Resources Advisory Commission, to share ideas, develop common and consistent
restoration policies, and resolve problems before they create insurmountable
road blocks to progress. Second, we
have developed important legal assurances, including the binding assurances
agreement and the programmatic regulations, to guide our efforts to achieve our
Everglades restoration goals. Third,
the work to implement the specific project features authorized by WRDA 2000 is
underway. We have made progress toward
implementing specific project features by forming the project delivery teams
and acquiring the necessary lands.
Finally, efforts to improve water quality are underway; habitat is being
protected and restored; and we are taking action to recover species.
In the last
decade alone, the federal and state governments have made significant progress
on the road to a renewed Everglades, indicating that we have the tools to
achieve restoration success. We need to
encourage and continue the dialogue among all the affected parties and entities
that wish to restore the Everglades.
Working together, we can and will achieve our Everglades restoration
goals. As Secretary Norton noted
earlier this year, long-term collaboration is the key to our success.
Mr.
Chairman, this concludes my statement.
Thank you for the opportunity to address the Committee on this important
effort. I am pleased to answer any
questions you or the other Members of the Committee may have.