Chesapeake Bay Program
Recent Actions Are Positive Steps Toward More Effectively Guiding the Restoration Effort Gao ID: GAO-08-1033T July 30, 2008The Chesapeake Bay Program (Bay Program) was created in 1983 when Maryland, Pennsylvania, Virginia, the District of Columbia, the Chesapeake Bay Commission, and the Environmental Protection Agency (EPA) agreed to establish a partnership to restore the Bay. The partnership's most recent agreement, Chesapeake 2000, sets out five broad goals to guide the restoration effort through 2010. This testimony summarizes the findings of an October 2005 GAO report (GAO-06-96) on (1) the extent to which measures for assessing restoration progress had been established, (2) the extent to which program reports clearly and accurately described the bay's health, (3) how much funding was provided for the effort for fiscal years 1995 to 2004, and (4) how effectively the effort was being coordinated and managed. It also summarizes actions taken by the program in response to GAO's recommendations. GAO reviewed the program's 2008 report to Congress and discussed recent actions with program officials.
In 2005, GAO found that the Bay Program had over 100 measures to assess progress toward meeting some restoration commitments and guide program management. However, the program had not developed an integrated approach that would translate these individual measures into an assessment of progress toward achieving the restoration goals outlined in Chesapeake 2000. For example, while the program had appropriate measures to track crab, oyster, and rockfish populations, it did not have an approach for integrating the results of these measures to assess progress toward its goal of protecting and restoring the bay's living resources. In response to GAO's recommendation, the Bay Program has integrated key measures into 3 indices of bay health and 5 indices of restoration progress. In 2005, the reports used by the Bay Program did not provide effective and credible information on the health status of the bay. Instead, these reports focused on individual trends for certain living resources and pollutants, and did not effectively communicate the overall health status of the bay. These reports were also not credible because actual monitoring data had been commingled with the results of program actions and a predictive model, and the latter two tended to downplay the deteriorated conditions of the bay. Moreover, the reports lacked independence, which led to rosier projections of the bay's health than may have been warranted. In response to GAO's recommendations, the Bay Program developed a new report format and has tried to enhance the independence of the reporting process. However, the new process does not adequately address GAO's concerns about independence. From fiscal years 1995 through 2004, the restoration effort received about $3.7 billion in direct funding from 11 key federal agencies; the states of Maryland, Pennsylvania, and Virginia; and the District of Columbia. These funds were used for activities that supported water quality protection and restoration, sound land use, vital habitat protection and restoration, living resources protection and restoration, and stewardship and community engagement. During this period, the restoration effort also received an additional $1.9 billion in funding from federal and state programs for activities that indirectly contribute to the restoration effort. In 2005, the Bay Program did not have a comprehensive, coordinated implementation strategy to help target limited resources to those activities that would best achieve the goals outlined in Chesapeake 2000. The program was focusing on 10 key commitments and had developed numerous planning documents, but some of these documents were inconsistent with each other or were perceived as unachievable by the partners. In response to GAO's recommendations, the Bay Program has taken several actions, such as developing a strategic framework to unify planning documents and identify how it will pursue its goals. While these actions are positive steps, additional actions are needed before the program has the comprehensive, coordinated implementation strategy recommended by GAO.
GAO-08-1033T, Chesapeake Bay Program: Recent Actions Are Positive Steps Toward More Effectively Guiding the Restoration Effort
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Testimony:
Before the Subcommittee on Water Resources and Environment, Committee
on Transportation and Infrastructure, House of Representatives:
United States Government Accountability Office:
GAO:
For Release on Delivery:
Expected at 2:00 p.m. EDT Wednesday, July 30, 2008:
Chesapeake Bay Program:
Recent Actions Are Positive Steps Toward More Effectively Guiding the
Restoration Effort:
Statement of Anu K. Mittal, Director:
Natural Resources and Environment:
GAO-08-1033T:
GAO Highlights:
Highlights of GAO-08-1033T, a testimony before the Subcommittee on
Water Resources and Environment, Committee on Transportation and
Infrastructure, House of Representatives.
Why GAO Did This Study:
The Chesapeake Bay Program (Bay Program) was created in 1983 when
Maryland, Pennsylvania, Virginia, the District of Columbia, the
Chesapeake Bay Commission, and the Environmental Protection Agency
(EPA) agreed to establish a partnership to restore the Bay. The
partnership‘s most recent agreement, Chesapeake 2000, sets out five
broad goals to guide the restoration effort through 2010. This
testimony summarizes the findings of an October 2005 GAO report (GAO-06-
96) on (1) the extent to which measures for assessing restoration
progress had been established, (2) the extent to which program reports
clearly and accurately described the bay's health, (3) how much funding
was provided for the effort for fiscal years 1995 to 2004, and (4) how
effectively the effort was being coordinated and managed. It also
summarizes actions taken by the program in response to GAO‘s
recommendations. GAO reviewed the program‘s 2008 report to Congress and
discussed recent actions with program officials.
What GAO Found:
In 2005, GAO found that the Bay Program had over 100 measures to assess
progress toward meeting some restoration commitments and guide program
management. However, the program had not developed an integrated
approach that would translate these individual measures into an
assessment of progress toward achieving the restoration goals outlined
in Chesapeake 2000. For example, while the program had appropriate
measures to track crab, oyster, and rockfish populations, it did not
have an approach for integrating the results of these measures to
assess progress toward its goal of protecting and restoring the bay‘s
living resources. In response to GAO‘s recommendation, the Bay Program
has integrated key measures into 3 indices of bay health and 5 indices
of restoration progress.
In 2005, the reports used by the Bay Program did not provide effective
and credible information on the health status of the bay. Instead,
these reports focused on individual trends for certain living resources
and pollutants, and did not effectively communicate the overall health
status of the bay. These reports were also not credible because actual
monitoring data had been commingled with the results of program actions
and a predictive model, and the latter two tended to downplay the
deteriorated conditions of the bay. Moreover, the reports lacked
independence, which led to rosier projections of the bay‘s health than
may have been warranted. In response to GAO‘s recommendations, the Bay
Program developed a new report format and has tried to enhance the
independence of the reporting process. However, the new process does
not adequately address GAO‘s concerns about independence.
From fiscal years 1995 through 2004, the restoration effort received
about $3.7 billion in direct funding from 11 key federal agencies; the
states of Maryland, Pennsylvania, and Virginia; and the District of
Columbia. These funds were used for activities that supported water
quality protection and restoration, sound land use, vital habitat
protection and restoration, living resources protection and
restoration, and stewardship and community engagement. During this
period, the restoration effort also received an additional $1.9 billion
in funding from federal and state programs for activities that
indirectly contribute to the restoration effort.
In 2005, the Bay Program did not have a comprehensive, coordinated
implementation strategy to help target limited resources to those
activities that would best achieve the goals outlined in Chesapeake
2000. The program was focusing on 10 key commitments and had developed
numerous planning documents, but some of these documents were
inconsistent with each other or were perceived as unachievable by the
partners. In response to GAO‘s recommendations, the Bay Program has
taken several actions, such as developing a strategic framework to
unify planning documents and identify how it will pursue its goals.
While these actions are positive steps, additional actions are needed
before the program has the comprehensive, coordinated implementation
strategy recommended by GAO.
What GAO Recommends:
In 2005, GAO recommended that the Bay Program complete efforts to
develop and implement an integrated approach, revise its reports to
improve their effectiveness and credibility, and develop a
comprehensive, coordinated implementation strategy that takes into
account available resources. GAO is not making new recommendations.
To view the full product, including the scope and methodology, click on
[hyperlink, http://www.gao.gov/cgi-bin/getrpt?GAO-08-1033T]. For more
information, contact Anu Mittal, (202) 512-3841, mittala@gao.gov.
[End of section]
Madam Chairwoman and Members of the Subcommittee:
I am pleased to be here today to participate in your second hearing
focusing on the importance of protecting the health of our nation's
great water bodies, such as the Chesapeake Bay. As you know, the
Chesapeake Bay is the nation's largest estuary and has been recognized
by Congress as a national treasure. In response to the deteriorating
conditions of the bay, in 1983, the states of Maryland, Pennsylvania,
and Virginia; the District of Columbia; the Chesapeake Bay
Commission;[Footnote 1] and the Environmental Protection Agency (EPA)
first partnered to protect and restore the bay by establishing the
Chesapeake Bay Program (Bay Program). Subsequent agreements in 1987,
1992, and 2000 reaffirmed the partners' commitment to bay restoration,
and in their most recent agreement, Chesapeake 2000, which was signed
in June 2000, they established 102 commitments organized under five
broad restoration goals to be achieved by 2010.
In October 2005, we issued a report on the Chesapeake Bay restoration
effort that addressed (1) the extent to which the Bay Program had
established appropriate measures for assessing restoration progress,
(2) the extent to which the reporting mechanisms the Bay Program used
clearly and accurately described the bay's overall health, (3) how much
funding had been provided by federal and state partners for restoring
the Chesapeake Bay for fiscal years 1995 through 2004 and for what
purposes, and (4) how effectively the restoration effort had been
coordinated and managed.[Footnote 2]
Our report included six recommendations--one recommendation to develop
and implement an integrated approach to measure overall progress, three
recommendations to enhance the effectiveness and credibility of the Bay
Program's public reporting, and two recommendations to improve the
management and coordination of the restoration effort. Since our report
was issued, the Bay Program, with the encouragement of Congress, has
been taking steps to address the findings and recommendations we
identified in our 2005 report. My testimony today will therefore cover
the concerns we raised in 2005, the recommendations that we made to
address these concerns, and our assessment of the steps that the Bay
Program has taken to address our recommendations.
For our 2005 report, we reviewed planning and program implementation
documents and funding data from Bay Program partners. We also convened
a panel of nationally recognized ecosystem restoration and assessment
experts. For the 2005 report, we conducted our work from October 2004
to October 2005 in accordance with generally accepted government
auditing standards. For this testimony statement, we updated our 2005
report by assessing the progress that the Bay Program has made in
implementing our recommendations. We reviewed Bay Program documents,
such as a July 2008 report to Congress, entitled Strengthening the
Management, Coordination, and Accountability of the Chesapeake Bay
Program and the Bay Program's Scientific and Advisory Committee bylaws
and operational guidance. We also looked at partners' activities and
funding data in the new Bay Program database, and spoke with officials
at EPA's Chesapeake Bay Program Office. We conducted our work in July
2008 in accordance with generally accepted government auditing
standards. These standards require that we plan and perform the audit
to obtain sufficient, appropriate evidence to provide a reasonable
basis for our findings and conclusions based on our audit objectives.
We believe the evidence obtained provides a reasonable basis for our
findings and conclusions based on our audit objectives.
In summary:
* In 2005, we reported that the Bay Program had established over 100
measures to assess progress toward meeting some of its commitments and
provide information to guide management decisions. For example, the
program had measures for assessing trends in various living resources
such as oysters and crabs, and pollutants such as nitrogen and
phosphorus levels. However, the program had not developed an approach
that would allow it to integrate all of these measures and thereby
assess the progress made by the overall restoration effort in achieving
the five goals outlined in Chesapeake 2000. We recommended that the Bay
Program develop such an approach, which would allow the program to
combine its individual measures into a few broader-scale measures that
it could then use to assess key ecosystem attributes and present an
overall assessment of this complex ecosystem restoration project. In
response to our recommendation, the Bay Program integrated key measures
to develop three indices of bay health and five indices of restoration
progress and has used these indices to present overall assessments of
the health of the bay and the restoration effort. We believe that these
new indices will allow the Bay Program to provide a better overall
assessment of the bay's health and the restoration progress.
* In 2005, we also found that the Bay Program's primary mechanism for
reporting on the health status of the bay--the State of the Chesapeake
Bay report--did not provide an effective or credible assessment of the
bay's current health status. These reports were not effective because,
like the program's measures, they focused on individual species and
pollutants instead of providing an overall assessment of the bay's
health. Often, these reports showed diverging trends for certain
aspects of the ecosystem, making it difficult for the public and other
stakeholders to determine what the current condition of the bay really
was. These reports were also not credible because they (1) commingled
data on the bay's health with program actions and modeling results,
which tended to downplay the deteriorated conditions of the bay and (2)
were not subject to an independent review process. As a result, we
concluded that the Bay Program reports may have been projecting a
rosier picture of the health of the bay than may have been warranted.
In response to our recommendations, the Bay Program took several steps
to improve the effectiveness and credibility of its reports. However,
we believe the Bay Program can take additional steps to establish an
independent peer review process that will enhance the credibility and
objectivity of its reports.
* For fiscal years 1995 through 2004, we reported that about $3.7
billion in direct funding was provided for the Chesapeake Bay
restoration effort by 11 key federal agencies; the states of Maryland,
Pennsylvania, and Virginia; and the District of Columbia.[Footnote 3]
An additional $1.9 billion was provided for activities that had an
indirect impact on bay restoration. Although we did not make any
recommendations about the need to collect and aggregate information on
the amount of funding contributed by the various partners to the
effort, since we issued our report, the Bay Program has set up a formal
data collection effort. The Bay Program has established a Web-based
system for collecting information from its partners on the amount and
source of funding being used and planned for restoration activities.
* Finally, in 2005 we reported that the Bay Program did not have a
comprehensive, coordinated implementation strategy that would allow it
to strategically target limited resources to the most effective
restoration activities. Recognizing that it could not manage all 102
commitments outlined in Chesapeake 2000, the Bay Program had focused
its efforts on 10 keystone commitments. We also found that although the
Bay Program had developed numerous planning documents, some of these
documents were inconsistent with each other and some of the plans were
perceived to be unachievable by stakeholders. Moreover, the program
invested scarce resources in developing and updating certain plans,
even though it knew that it did not have the resources to implement
them. While we recognized that the Bay Program often had no assurance
about the level of funds that may be available beyond the short term,
we concluded that this large and difficult restoration project cannot
be effectively managed and coordinated without a realistic strategy
that unifies all of its planning documents and targets its limited
resources to the most effective restoration activities. In response to
our recommendations, the Bay Program has taken several actions to
improve the coordination and management of the restoration effort, such
as developing a strategic framework to articulate how the partnership
will pursue its goals. While these actions appear to be positive steps
in the right direction, we believe that additional actions, such as
identifying resources and assigning accountability to partners for
implementing the strategy, are needed for the Bay Program to move
forward in a more strategic and well-coordinated manner.
We discussed our assessment of the Bay Program's actions taken in
response to our recommendations with program officials. Based on this
discussion, we incorporated technical changes to this statement.
Background:
The Chesapeake Bay is the largest of the nation's estuaries, measuring
nearly 200 miles long and 35 miles wide at its widest point. Roughly
half of the bay's water comes from the Atlantic Ocean, and the other
half is freshwater that drains from the land and enters the bay through
the many rivers and streams in its watershed basin. As shown in figure
1, the bay's watershed covers 64,000 square miles and spans parts of
six states--Delaware, Maryland, New York, Pennsylvania, Virginia, and
West Virginia--and the District of Columbia.
Figure 1: Chesapeake Bay Watershed:
This figure is a map of the Chesapeake Bay watershed.
[See PDF for image]
Source: Chesapeake Bay Program Office and GAO.
[End of figure]
Over time, the bay's ecosystem has deteriorated. The bay's "dead
zones"--where too little oxygen is available to support fish and
shellfish--have increased, and many species of fish and shellfish have
experienced major declines in population. The decline in the bay's
living resources has been cause for a great deal of public and
political attention.
Responding to public outcry, on December 9, 1983, representatives of
Maryland, Pennsylvania, and Virginia; the District of Columbia; EPA;
and the Chesapeake Bay Commission signed the first Chesapeake Bay
agreement. Their agreement established the Chesapeake Executive Council
and resulted in the Chesapeake Bay Program--a partnership that directs
and conducts the restoration of the bay. The signatories to the
agreement reaffirmed their commitment to restore the bay in 1987 and
again in 1992. The partners signed the most current agreement,
Chesapeake 2000, on June 28, 2000. Chesapeake 2000--identified by the
Bay Program as its strategic plan--sets out an agenda and goals to
guide the restoration efforts through 2010 and beyond. In Chesapeake
2000, the signatories agreed to 102 commitments--including management
actions, such as assessing the trends of particular species, as well as
actions that directly affect the health of the bay. These commitments
are organized under the following five broad restoration goals:
* Protecting and restoring living resources--14 commitments to restore,
enhance, and protect the finfish, shellfish and other living resources,
their habitats and ecological relationships to sustain all fisheries
and provide for a balanced ecosystem;
* Protecting and restoring vital habitats--18 commitments to preserve,
protect, and restore those habitats and natural areas that are vital to
the survival and diversity of the living resources of the bay and its
rivers;
* Protecting and restoring water quality--19 commitments to achieve and
maintain the water quality necessary to support the aquatic living
resources of the bay and its tributaries and to protect human health;
* Sound land use--28 commitments to develop, promote, and achieve sound
land use practices that protect and restore watershed resources and
water quality, maintain reduced pollutant inputs to the bay and its
tributaries, and restore and preserve aquatic living resources; and:
* Stewardship and community engagement--23 commitments to promote
individual stewardship and assist individuals, community-based
organizations, businesses, local governments, and schools to undertake
initiatives to achieve the goals and commitments of the agreement.
As the only federal signatory to the Chesapeake Bay agreements, EPA is
responsible for spearheading the federal effort within the Bay Program
through its Chesapeake Bay Program Office. Among other things, the
Chesapeake Bay Program Office is to develop and make available
information about the environmental quality and living resources of the
Chesapeake Bay ecosystem; help the signatories to the Chesapeake Bay
agreement develop and implement specific plans to carry out their
responsibilities; and coordinate EPA's actions with those of other
appropriate entities to develop strategies to improve the water quality
and living resources in the Chesapeake Bay ecosystem.
The Bay Program Has Developed an Integrated Approach to Better Assess
Overall Restoration Progress:
In October 2005, we found that the Bay Program had established 101
measures to assess progress toward meeting some restoration commitments
and provide information to guide management decisions. For example, the
Bay Program had developed measures for determining trends in individual
fish and shellfish populations, such as crabs, oysters, and rockfish.
The Bay Program also had a measure to estimate vehicle emissions and
compare them to vehicle miles traveled to help establish reduction
goals for contaminants found in these emissions.
While the Bay Program had established these 101 measures, we also found
that it had not developed an approach that would allow it to translate
these individual measures into an overall assessment of the progress
made in achieving the five broad restoration goals. For example,
although the Bay Program had developed measures for determining trends
in individual fish and shellfish populations, it had not yet devised a
way to integrate those measures to assess the overall progress made in
achieving its Living Resource Protection and Restoration goal.
According to an expert panel of nationally recognized ecosystem
assessment and restoration experts convened by GAO, in a complex
ecosystem restoration project like the Chesapeake Bay, overall progress
should be assessed by using an integrated approach. This approach
should combine measures that provide information on individual species
or pollutants into a few broader-scale measures that can be used to
assess key ecosystem attributes, such as biological conditions.
According to an official from the Chesapeake Bay Program Office, the
signatories to the Chesapeake Bay agreement had discussed the need for
an integrated approach for several years, but until recently it was
generally not believed that, given limited resources, the program could
develop an approach that was scientifically defensible. The program
began an effort in November 2004 to develop, among other things, a
framework for organizing the program's measures and a structure for how
the redesign work should be accomplished. In our 2005 report, we
recommended that the Chesapeake Bay Program Office complete its efforts
to develop and implement such an integrated approach.
In response to our recommendation, a Bay Program task force identified
13 key indicators for measuring the health of the bay and categorized
these indicators into 3 indices of bay health. With the development of
these indices, the Bay Program should be in a better position to assess
whether restoration efforts have improved the health of the bay. These
indices will also help the Bay Program determine whether changes are
needed to its planned restoration activities. The task force also
identified 20 key indicators for measuring the progress of restoration
efforts and categorized these indicators into 5 indices of restoration
efforts. According to the Bay Program, these indices are now being used
to assess and report on the overall progress made in restoring the
bay's health and in implementing restoration efforts. The Bay Program
has linked these restoration effort indices to the overall restoration
goals and this should help the program better evaluate the progress it
has made toward meeting the overall goals.
The Bay Program Has Improved Report Formats but Has Not Taken Adequate
Steps to Enhance the Independence of the Reporting Process:
In 2005, we determined that the Bay Program's primary mechanism for
reporting on the health status of the bay--the State of the Chesapeake
Bay report--did not effectively communicate the current health status
of the bay. This was because it mirrored the shortcomings in the
program's measures by focusing on the status of individual species or
pollutants instead of providing information on a core set of ecosystem
characteristics. For example, the 2002 and 2004 State of the Chesapeake
Bay reports provided data on oysters, crab, rockfish, and bay grasses,
but the reports did not provide an overall assessment of the current
status of living resources in the bay or the health of the bay.
Instead, data were reported for each species individually. The 2004
State of the Chesapeake Bay report included a graphic that depicted
oyster harvest levels at historic lows, with a mostly decreasing trend
over time, and a rockfish graphic that showed a generally increasing
population trend over time. However, the report did not provide
contextual information that explained how these measures were
interrelated or what the diverging trends meant about the overall
health of the bay. The experts we consulted agreed that the 2004 report
was visually pleasing but lacked a clear, overall picture of the bay's
health and told us that the public would probably not be able to easily
and accurately assess the current condition of the bay from the
information reported.
We also found that the credibility of the State of the Chesapeake Bay
reports had been undermined by two key factors. First, the Bay Program
had commingled data from three sources when reporting on the health of
the bay. Specifically, the reports mixed actual monitoring information
on the bay's health status with results from a predictive model and the
progress made in implementing specific management actions, such as
acres of wetlands restored. The latter two results did little to inform
readers about the current health status of the bay and tended to
downplay the bay's actual condition. Second, the Bay Program had not
established an independent review process to ensure that its reports
were accurate and credible. The officials who managed and were
responsible for the restoration effort also analyzed, interpreted, and
reported the data to the public. We believe this lack of independence
in reporting led to the Bay Program's projecting a rosier view of the
health of the bay than may have been warranted. Our expert panelists
also told us that an independent review panel--to either review the
bay's health reports before issuance or to analyze and report on the
health status independently of the Bay Program--would significantly
improve the credibility of the program's reports.
In 2005, we recommended that the Chesapeake Bay Program Office revise
its reporting approach to improve the effectiveness and credibility of
its reports by (1) including an assessment of the key ecological
attributes that reflect the bay's current health conditions, (2)
reporting separately on the health of the bay and on the progress made
in implementing management actions, and (3) establishing an independent
and objective reporting process.
In response to our recommendation that reports should include an
ecological assessment of the health of the bay, the Bay Program has
developed and used a set of 13 indicators of bay health to report on
the key ecological attributes representing the health of the bay. In
response to our recommendation that the program should separately
report on the health of the bay and management actions, the Bay Program
has developed an annual reporting process that distinguishes between
ecosystem health and restoration effort indicators in its annual report
entitled Chesapeake Bay Health and Restoration Assessment. The most
recent report, entitled Chesapeake Bay 2007 Health and Restoration
Assessment, is divided into four chapters: chapter one is an assessment
of ecosystem health, chapter two describes factors impacting bay and
watershed health, chapter three is an assessment of restoration
efforts, and chapter four provides a summary of local water quality
assessments. We believe that the new report format is a more effective
communications framework and clearly distinguishes between the health
of the bay and management actions being taken.
In response to our recommendation to establish an independent and
objective reporting process, the Bay Program has charged its Scientific
and Technical Advisory Committee with responsibility for assuring the
scientific integrity of the data, indicators, and indices used in the
Bay Program's publications. In addition, the Bay Program instituted a
separate reporting process on the bay's health by the University of
Maryland Center for Environmental Science. This report, which is
released on the same day as the Bay Program's release of the Chesapeake
Bay Health and Restoration Assessment, provides an assessment of the
bay's health in a report card format. While we recognize that the
changes are an improvement over the reporting process that was in place
in 2005, we remain concerned about the lack of independence in the
process. Although members of the Scientific and Technical Advisory
Committee are not managing the day-to-day program activities, this
committee is a standing committee of the Bay Program and provides input
and guidance to the Bay Program on how to develop measures to restore
and protect the Chesapeake Bay. In addition, we do not believe that the
report card prepared by the University of Maryland Center for
Environmental Science is as independent as the Bay Program believes,
because several members of the Scientific and Technical Advisory
Committee are also employees of the University of Maryland Center for
Environmental Science. We therefore continue to believe that
establishing a more independent reporting process would enhance the
credibility and objectivity of the Bay Program's reports.
Federal Agencies and States Provided Billions of Dollars in Both Direct
and Indirect Funding for Restoration Activities:
From fiscal years 1995 through 2004, we reported that 11 key federal
agencies; the states of Maryland, Pennsylvania, and Virginia; and the
District of Columbia provided almost $3.7 billion in direct funding to
restore the bay. Federal agencies provided a total of approximately
$972 million in direct funding, while the states and the District of
Columbia provided approximately $2.7 billion in direct funding for the
restoration effort over the 10-year period. Of the federal agencies,
the Department of Defense's U.S. Army Corps of Engineers provided the
greatest amount of direct funding--$293.5 million. Of the states,
Maryland provided the greatest amount of direct funding--more than $1.8
billion--which is over $1.1 billion more than any other state.
Typically, the states provided about 75 percent of the direct funding
for restoration, and the funding has generally increased over the 10-
year period. As figure 2 shows, the largest percentage of direct
funding--approximately 47 percent--went to water quality protection and
restoration.
Figure 2: Percentage of the Total Direct Funding Provided for
Addressing Each of the Five Chesapeake 2000 Goals, Fiscal Years 1995
through 2004:
This figure is a pie graph showing percentage of the total direct
funding provided or addressing each of the five Chesapeake 2000 goals,
fiscal years 1995 through 2004.
Water quality protection and restoration: $1.7 billion: 47%;
Sound land use $1.1 billion: 30%;
Vital habitat protection and restoration: $491: 13%;
Living resource protection and restoration: $233 million: 6%;
Stewardship and community engagement: $156 million: 4%.
[See PDF for image]
Source: GAO analysis of agency data, in constant 2004 dollars.
[End of figure]
We also reported that 10 of the key federal agencies, Pennsylvania, and
the District of Columbia provided about $1.9 billion in additional
funding from fiscal years 1995 through 2004 for activities that
indirectly affect bay restoration. These activities were conducted as
part of broader agency efforts and/or would continue without the
restoration effort. Federal agencies provided approximately $935
million in indirect funding, while Pennsylvania and the District of
Columbia together provided approximately $991 million in indirect
funding for the restoration effort over the 10-year period. [Footnote
4] Of the federal agencies, the U.S. Department of Agriculture provided
the greatest amount of indirect funding--$496.5 million--primarily
through its Natural Resources Conservation Service. Of the states,
Pennsylvania provided the greatest amount of indirect funding--$863.8
million. As with direct funding, indirect funding for the restoration
effort had also generally increased over fiscal years 1995 through
2004. As figure 3 shows, the largest percentage of indirect funding--
approximately 44 percent--went to water quality protection and
restoration.
Figure 3: Percentage of the Total Indirect Funding Provided for
Addressing Each of the Five Chesapeake 2000 Goals, Fiscal Years 1995
through 2004:
Water quality protection and restoration: $841 billion: 44%;
Sound land use: $702 billion: 36%;
Vital habitat protection and restoration: $209: 11%;
Living resource protection and restoration: $72 million: 4%;
Stewardship and community engagement: $102 million: 5%.
[See PDF for image]
Source analysis of agency data, in constant 2004 dollars.
[End of figure]
Despite the almost $3.7 billion in direct funding and more than $1.9
billion in indirect funding that had been provided to restore the bay,
the Chesapeake Bay Commission estimated in a January 2003 report that
the restoration effort faced a funding gap of nearly $13 billion to
achieve the goals outlined in Chesapeake 2000 by 2010. Subsequently, in
an October 2004 report, the Chesapeake Bay Watershed Blue Ribbon
Finance Panel estimated that the restoration effort is grossly
underfunded and recommended that a regional financing authority be
created with an initial capitalization of $15 billion, of which $12
billion would come from the federal government.[Footnote 5]
Although we did not recommend that the Bay Program consider developing
a formal process for collecting and aggregating information on the
amount of funding provided by the various restoration partners, the
program has developed a database to capture this information.
Recognizing the need to centrally and consistently account for the
activities and funding sources of all Bay Program partners, the program
created a Web-based form to collect information on the amount and
source of funding being used and planned for restoration activities.
Currently, the Bay Program has collected funding data for 2007 through
2009. However, according to the Bay Program, only the 2007 data--
totaling $1.1 billion--represents a comprehensive, quality data set,
and the program has plans to improve this database by having additional
partners provide data and increasing the scope and quality of the
information.
The Bay Program Has Established a Strategic Framework but Key Elements
to More Effectively Coordinate and Manage the Restoration Effort Are
Still Needed:
In our 2005 report we found that although Chesapeake 2000 provides the
current vision and overall strategic goals for the restoration effort,
along with short-and long-term commitments, the Bay Program lacked a
comprehensive, coordinated implementation strategy that could provide a
road map for accomplishing the goals outlined in the agreement. In
2003, the Bay Program recognized that it could not effectively manage
all 102 commitments outlined in Chesapeake 2000 and adopted 10 keystone
commitments as a management strategy to focus the partners' efforts. To
achieve these 10 keystone commitments, the Bay Program had developed
numerous planning documents. However, we found that these planning
documents were not always consistent with each other. For example, the
program developed a strategy for restoring 25,000 acres of wetlands by
2010. Subsequently, each state within the bay watershed and the
District of Columbia developed tributary strategies that described
actions for restoring over 200,000 acres of wetlands--far exceeding the
25,000 acres that the Bay Program had developed strategies for
restoring. While we recognize that partners should have the freedom to
develop higher targets than established by the Bay Program, we were
concerned that having such varying targets could cause confusion, not
only for the partners, but for other stakeholders about what actions
are really needed to restore the bay, and such varying targets appeared
to contradict the effort's guiding strategy of taking a cooperative
approach to achieving the restoration goals.
We also found that the Bay Program partners had devoted a significant
amount of their limited resources to developing strategies that were
either not being used by the Bay Program or were believed to be
unachievable within the 2010 time frame. For example, the program
invested significant resources to develop a detailed toxics work plan
for achieving the toxics commitments in Chesapeake 2000. Even though
the Bay Program had not been able to implement this work plan because
personnel and funding had been unavailable, program officials told us
that the plan was being revised. It was therefore unclear to us why the
program was investing additional resources to revise a plan for which
the necessary implementation resources were not available, and which
was also not one of the 10 keystone commitments. According to a Bay
Program official, strategies are often developed without knowing what
level of resources will be available to implement them. While the
program knows how much each partner has agreed to provide for the
upcoming year, the amount of funding that partners will provide in the
future is not always known. Without knowing what funding will be
available, the Bay Program has been limited in its ability to target
and direct funding toward those restoration activities that will be the
most cost effective and beneficial.
As a result of these findings in 2005, we recommended that the Bay
Program (1) develop a comprehensive, coordinated implementation
strategy and (2) better target limited resources to the most effective
and realistic work plans. In response to our recommendation to develop
a comprehensive and coordinated implementation strategy, the Bay
Program has developed a strategic framework to unify existing planning
documents and articulate how the partnership will pursue its goals.
According to the Bay Program, this framework is intended to provide the
partners with a common understanding of the partnership's agenda of
work, a single framework for all bay protection and restoration work,
and, through the development of realistic annual targets, a uniform set
of measures to evaluate the partners' progress in improving the bay.
However, while this framework provides broad strategies for meeting the
Bay Program's goals, it does not identify the activities that will be
implemented to meet the goals, resources needed to implement the
activities, or the partner(s) who will be responsible for funding and
implementing the activities. Therefore, we continue to believe that
additional work is needed before the strategy that the Bay Program has
developed can be considered a comprehensive, coordinated implementation
strategy that can move the restoration effort forward in a more
strategic and well-coordinated manner.
In response to our recommendation that the program target resources to
the most cost-effective strategies, according to the Bay Program, in
addition to the strategic framework described above, it has developed:
* annual targets that it believes are more realistic and likely to be
achieved;
* an activity integration plan system to identify and catalogue
partners' current and planned implementation activities and
corresponding resources; and:
* program progress dashboards, which provide high-level summaries of
key information, such as status of progress, summaries of actions and
funding, and a brief summary of the challenges and actions needed to
expedite progress.
According to the Bay Program, it has also adopted an adaptive
management process, which will allow it to modify the restoration
strategy in response to testing, monitoring, and evaluating applied
strategies and incorporating new knowledge, and thereby, better inform
partners' actions, emphasis, and future priorities. Bay Program
officials told us that these actions have started to have the intended
effects of promoting enhanced coordination among the partners,
encouraging partners to review and improve their progress in protecting
and restoring the bay, increasing the transparency of the Bay Program's
operations, and improving the accountability of the Bay Program and its
partners for meeting the bay health and restoration goals. We believe
these actions are positive steps toward responding to our
recommendation and improving the management and coordination of the Bay
Program.
In addition, the Bay Program partners have established a funding
priority framework that lists priorities for agriculture, wastewater
treatment, and land management activities. While these priorities can
be used to help achieve some of the annual targets established by the
program, other annual targets--such as those for underwater bay grasses
and oysters--do not have priorities associated with them. We believe
that a clear set of priorities linked to the annual targets can help
the partners focus the limited resources available to those activities
that provide the greatest benefit to the health of the bay.
In closing, Madam Chairwoman, it is well recognized that restoring the
Chesapeake Bay is a massive, difficult, and complex undertaking. Our
October 2005 report documented how the success of the program had been
undermined by the lack of (1) an integrated approach to measure overall
progress; (2) independent and credible reporting mechanisms; and (3)
coordinated implementation strategies. These deficiencies had resulted
in a situation in which the Bay Program could not present a clear and
accurate picture of what the restoration effort had achieved, could not
effectively articulate what strategies would best further the broad
restoration goals, and could not identify how to set priorities for
using limited resources. Since our report was issued, the Bay Program,
with encouragement from Congress, has taken our recommendations
seriously and has taken steps to implement them. The Bay Program has
made important progress, and we believe that these initial steps will
enable better management of the restoration effort. However, additional
actions are still needed to ensure that the restoration effort is
moving forward in the most cost-effective manner.
Madam Chairwoman, this concludes my prepared statement. I would be
happy to respond to any questions that you or Members of the
Subcommittee may have.
Contacts and Acknowledgments:
Contact points for our Offices of Congressional Relations and Public
Affairs may be found on the last page of this statement. For further
information about this testimony, please contact Anu Mittal at (202)
512-3841 or mittala@gao.gov. Other individuals making significant
contributions to this testimony were Sherry McDonald, Assistant
Director, and Barbara Patterson.
Footnotes:
[1] The Chesapeake Bay Commission is a tristate legislative assembly
representing Maryland, Pennsylvania, and Virginia.
[2] GAO, Chesapeake Bay Program: Improved Strategies Are Needed to
Better Assess, Report, and Manage Restoration Progress, GAO-06-96
(Washington, D.C.: Oct. 28, 2005).
[3] Key federal agencies include the U.S. Department of Agriculture's
Farm Service Agency, Forest Service, and Natural Resources Conservation
Service; Department of Commerce's National Oceanic and Atmospheric
Administration; Department of Defense's Army, Army Corps of Engineers,
and Navy/Marine Corps; Department of the Interior's Fish and Wildlife
Service, U.S. Geological Survey, and National Park Service; and EPA.
For purposes of our report and this testimony, we defined direct funds
as those that are provided exclusively for bay restoration activities
(e.g., increasing the oyster population) or those that would no longer
be made available in the absence of the restoration effort.
[4] In addition to the funding provided for the restoration of the bay,
EPA provided more than $1 billion to Maryland, Pennsylvania, and
Virginia through its Clean Water State Revolving Fund program during
fiscal years 1995 through 2004. The funds provide low-cost loans or
other financial assistance for a wide range of water quality
infrastructure projects and other activities, such as implementing
agricultural best management practices.
[5] The Chesapeake Bay Watershed Blue Ribbon Finance Panel was
established to identify funding sources sufficient to implement
basinwide cleanup plans so that the bay and tidal tributaries would be
restored sufficiently by 2010 to remove them from the list of impaired
waters under the Clean Water Act. The panel was composed of 15 leaders
from the private sector, government, and the environmental community.
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