09 fri 0930 emerging megatrends in water law and policy 2
TRANSCRIPT
Water Policy Development in Florida
APA Florida 2011 ConferenceSeptember 7-10
Palm Beach
Powerpoint TemplatesPage 2
Presentation Overview
• Historical Water Policy Philosophy
• How Ecosystem Impacts Led to Policy Changes
• Water Policy in Action
• Everglades Restoration
• Kissimmee River Restoration
Powerpoint TemplatesPage 5
5
The “Original” Everglades Ecosystem
• Water connected the system, from top to bottom
• 9 million acres of wetlands providing a variety of habitat
• Diverse mosaic of landscapes and seascapes
Powerpoint TemplatesPage 6
6
Historical ProblemsLeading to Construction of C&SF Project
Areas Floodedin 1947
Areas Floodedin 1926 &
1928
• Hurricanes in 1926 and 1928 resulted in failure of the levee around Lake Okeechobee
• Hurricane in 1947 resulted in wide-spread flooding throughout South Florida
• State of Florida requested Federal assistance in 1947
• Congress authorized the
C&SF Project in 1948
Powerpoint TemplatesPage 7
Central & Southern Florida Project
• 1,800 miles of canals and levees
• 160 major drainage basins
• Over 2,000 water control structures
• 200 major structures• 36 pump stations
• 1,800 miles of canals and levees
• 160 major drainage basins
• Over 2,000 water control structures
• 200 major structures• 36 pump stations
Powerpoint TemplatesPage 8
8
C&SF Project Infrastructure
One of the world’s largest and most complex water resource management systems
Powerpoint TemplatesPage 9
9
Major Features of the C&SF Project
River Channelization
Herbert Hoover Dike
Water Conservation Areas
Protective Levees
• Everglades Agricultural Area
• Lower East Coast
Drainage Network
• Salinity Structures
Powerpoint TemplatesPage 10
10
HistoricFlow
CurrentFlow
System Modifications
Powerpoint TemplatesPage 11
11
Loss of Everglades to Urban and Agricultural Development
Powerpoint TemplatesPage 12
How Ecosystem Impacts Led to Policy Change
Powerpoint TemplatesPage 13
13
An Ecosystem in Trouble
• Too m uch or too little w ater for the South F lorida ecosystem
• 1.7 b illion gallons of w ater per day is lost to the ocean
• D eclin ing estuary health
• M assive reductions in w ading b ird populations
• D egradation of w ater quality
• Loss of native habita t to invasive exotic vegetation
• 70 Federa lly-lis ted threatened and endangered species
• Too much or too little water for the South Florida ecosystem
• 1.7 billion gallons of water per day is lost to the ocean
• Declining estuary health• Massive reductions in
wading bird populations• Degradation of water quality• Loss of native habitat to invasive
exotic vegetation• 70 Federally-listed threatened and
endangered species
Powerpoint TemplatesPage 14
• Chapter 373, Florida Statute Based new program on blend of eastern and
western common law doctrines Certainty & Flexibility Users must obtain a permit to have a right to
use water in Florida• Exclusive water management district authority• No property right to water• Permits expire
Major Principles of Florida Water Law
Powerpoint TemplatesPage 15
Florida Water Resources Act of 1972 broadened the agency’s mission to include:
• Water supply• Water quality protection• Environmental management• Flood protection
District Mission
Powerpoint TemplatesPage 16
• Legislative Intent (ss. 373.016 and 0831, F.S.) Sufficient water be available for all existing and
future reasonable-beneficial uses and the natural system
Avoid competition for water supply• Statutory Direction on Plan Formulation:
Required when sources not adequate to supply water for existing and future uses and sustain natural systems
20-year planning horizon Planning conducted in public process Required contents Section 373.0361, F.S.
Regional Water Supply Planning
Powerpoint TemplatesPage 17
Physical Certainty – The Amount of the Allocation – “Just the Right Size Slice”• 1 in 10 Level of Physical Certainty
Legislative Direction (Section 373.705, F.S.) Balancing: reasonable allocation, no harm to
environment, infrequent competition in drought
• District Implementation Implemented in regional water supply plans Consumptive Use Permit
(CUP) rules (1 in 10) Linked to:
• Water Shortage• Minimum Flows and Levels (MFLs)• Projects to develop water supply and water
resources
Powerpoint TemplatesPage 18
Consumptive use permit rules
• 1 in 10 allocations
• Wetlands, salt water intrusion, reservation, and regional water availability rule
Water shortage trigger rules
MFLs and recovery plans
• Adopted rules to implement plan based on performance measures
Implementation of the 2000 Regional Water Supply Plans
Powerpoint TemplatesPage 19
Overall Legislative Policy
• Manage water resources to ensure sustainability
• Various statutes establish the need to: Protect and/or enhance the natural
resource Allow for development of water
supply• Numerous statutory authorizations or
“tools” to manage water in varying conditions to achieve sustainability
Powerpoint TemplatesPage 20
Comprehensive Solution Required
• State and Federal government recognized the need for additional C&SF features
• Additional water storage needed
• Additional stormwater treatment needed to improve water quality
• Improved timing of deliveries needed
• Improve distribution by removal of point sources, levees, and canals
Powerpoint TemplatesPage 21
21
C&SF Project Comprehensive Review Study
• Study authorized by Congress in the Water Resources Development Act (WRDA) of 1992
• Study was initiated in June 1993• Purpose of Study was to reexamine the
C&SF Project to: Restore South Florida ecosystem Enhance water supplies Maintain flood control
• Study authorized by Congress in the Water Resources Development Act (WRDA) of 1992
• Study was initiated in June 1993• Purpose of Study was to reexamine the
C&SF Project to: Restore South Florida ecosystem Enhance water supplies Maintain flood control
Powerpoint TemplatesPage 23
Area Specific Rules Protecting Water for the Natural System
• Minimum Flows and Levels
• Restricted Allocation Areas
• Water Reservations
• In addition, general consumptive use rules apply
Powerpoint TemplatesPage 24
• Protect water resource from further withdrawals that cause significant harm
• Requirement to consider changes and structural alterations to the watershed when setting MFLs
• Governing Board does not have to set MFL based on historic conditions where: Water bodies do not serve historic hydrologic
functions
Recovery to historic hydrologic functions is not economically or technically feasible
• Recovery and prevention strategies must provide for water supply to offset any reductions in permitted withdrawals
Minimum Flows and Levels – 373.042, 373.0421, F.S.
Powerpoint TemplatesPage 25
Minimum Flows and Levels Water Bodies
MFL Prevention Water Bodies Biscayne aquifer
Lower West Coast aquifers
North Fork of the St Lucie River
Lake Istokpoga
Northeastern Florida Bay
MFL Recovery Water Bodies Lake Okeechobee
Everglades
Caloosahatchee River
Northwest Fork of Loxahatchee River
Powerpoint TemplatesPage 26
Water Reservation Rules
• Authority: 373.223(4), F.S.• Set aside water for
protection of fish and wildlife or for public health and safety
• No harm standard• Existing legal uses
protected, unless contrary to the public interest
Powerpoint TemplatesPage 27
Water Reservation Waterbodies
• Rules in place– Picayune Strand and
Fakahatchee Estuary
– North Fork of the St. Lucie River
• Rules in development– Kissimmee Basin Chain of
Lakes and River
– Caloosahatchee Estuary
Powerpoint TemplatesPage 28
• Prevents new uses from accessing reserved water
• Existing legal uses that are not contrary to the public interest are protected
What Does a Reservation Do?
Powerpoint TemplatesPage 29
What a Reservation Doesn’t Do
• Establish an operating regime by rule
• Drought proof the natural system
• Ensure the fish and wildlife goals are achieved
Powerpoint TemplatesPage 30
• Identifies specific geographic areas and/or canal conveyance systems from which allocations are restricted
• Criteria for Permit Issuance - 373.223(1), F.S.
Reasonable-beneficial - "economic and efficient utilization"
Consistent with the public interest
Restricted Allocation Area Rules
Powerpoint TemplatesPage 31
Everglades & Loxahatchee River watershed
Lower East Coast Service Area
Lake Okeechobee Service Area
Central Florida Coordination Area
C-23,C-24 & C25 Canal system
Lake Istokpoga /Indian Prairie Canal
Restricted Allocation Areas
Powerpoint TemplatesPage 32
Summary of Tool Selection
• Selection of tool (MFL, Reservation, RAA) dependent on: Whether resource has existing protection Level of protection sought for the resource Level of scientific information available to
support tool Legal mandates for use of specific tool
(e.g., CERP) Spatial extent of area to be addressed
Powerpoint TemplatesPage 34
On July 1, 1999, the Secretary of the Army
and the State of Florida presented the Plan to
Congress
34
Rescuing an Endangered Ecosystem:
The Plan to Restore America’s Everglades
July 1999The Central and Southern Florida Project
Comprehensive Review Study (The Restudy)
Comprehensive Everglades
Restoration Plan
Comprehensive Everglades Restoration Plan
Powerpoint TemplatesPage 35
Comprehensive Everglades Restoration Plan
• Includes 68 components to be implemented over 35 years
• Features include:– Aquifer Storage & Recovery– Surface Water Storage
Reservoirs– Stormwater Treatment Areas– Seepage Management– Removing Barriers to Sheetflow– Operational Changes– Reuse Wastewater
Powerpoint TemplatesPage 36
• New Projects – “Make Pie Bigger” for both environment and users Alternative water supply projects CERP Projects
Plan to “Make Pie Bigger”
Powerpoint TemplatesPage 37
WRDA-2000 Assurance of Project Benefits• Requirements for reservation or allocation
of water for the natural system include: Execution of an agreement between
President and Governor Quantification of water for the natural system
in each project implementation report Completion of rulemaking and verification
beforesigning a Project Cooperation Agreement
• Savings Clause No transfer or elimination of existing legal
sources No reduction in the level of service for flood
protection
Powerpoint TemplatesPage 38
Intervening Events
• CERP schedules delayed from those in Plan Federal funding
• LORS 2008 – Federal Action reduces Lake storage Lake Okeechobee MFL projected to
experience significant harm• Consumptive use permit rules “cap” Lake
uses Permits renewed for 20 year duration
Powerpoint TemplatesPage 39
• 2000 Plan identified need for “bigger pie”• LORS 2008 shrinks the size of water
supply pie• Less physical certainty for environment
and users 1 in10 to 1 in 6 level of certainty
Intervening event: LORS 2008 and Physical Level of Certainty
Powerpoint TemplatesPage 41
Kissimmee River ChannelizationUnintended Consequences
• More than 30,000 acres of wetland habitat lost
• More than 90% reduction in migratory waterfowl
• Dramatic reduction in wading birds
• Significant impact on sport fisheries – replaced by species that can tolerate low oxygen
Powerpoint TemplatesPage 42
Kissimmee River Channelization(1962 to 1971)
Transformed the 103- mile natural, meandering river and floodplain
To a 56-mile straight, narrow and deep canal
Powerpoint TemplatesPage 43
Kissimmee River Restoration Project
• Acquire 102,000 acres of historical river floodplain – Nearly complete; $300 million invested
• Remove 2 large water control structures– 1 structure removed
• Backfill 22 miles of canal– 65% complete
• Recarve 9 miles of remnant river channel – 60% complete
• Rehydrate 25,000 acres of river floodplain– 60% complete
1994 - 2014
Powerpoint TemplatesPage 44
• 14 miles of C-38 Canal backfilled
• 24 miles of continuous river channel restored
• Approximately 15,000 acres of floodplain habitat restored
Backfilled C-38
Canal
Backfilled C-38
Canal
RemnantRiver
Channel
RemnantRiver
Channel
RemnantRiver
Channel
RemnantRiver
Channel
Degraded Spoil Area
Degraded Spoil Area
New River ConnectionNew River Connection
Kissimmee River RestorationCanal Backfilling Progress
Powerpoint TemplatesPage 45
Kissimmee River Restoration
Response: Floodplain Vegetation
Pre-restoration Post-restoration
Powerpoint TemplatesPage 46
Kissimmee River Restoration
Response: River Channel Vegetation
Pre-restoration Post-restoration