The  Congress formally established the Task Force and expanded its  membership in 1996 to include state and local agencies and two American  Indian tribes and charged the Task Force with the following  responsibilities for restoring the South Florida ecosystem:    coordinating the development of consistent policies, strategies, plans,  programs, projects, activities, and priorities for addressing the restoration,  preservation, and protection of the ecosystem;   exchanging information on programs, projects, and activities of the  agencies and entities represented on the Task Force to promote ecosystem  restoration and maintenance; facilitating the resolution of interagency and intergovernmental conflicts  associated with the restoration of the ecosystem among the agencies and  entities represented on the Task Force;   coordinating scientific and other research associated with the restoration    providing assistance and support to agencies and entities represented on  the Task Force in their restoration activities. Although Many Restoration Projects Have Been Completed or Are Ongoing, Key Restoration Benefits Are Expected to Come from Projects Not Yet Implemented

Forty-three of the 222 projects that constitute the South Florida ecosystem  restoration effort have been completed, while the remaining projects are  currently being implemented or are either in design, being planned, or  have not yet started. The projects  now being implemented also emphasize the restoration of wildlife habitat  by acquiring or improving land, as well as the construction of key CERP- related projects that will improve water flow to natural areas. However, both agency and Task Force officials report a number of  achievements, such as finalizing key CERP agreements and restoring a  more natural water flow to the Kissimmee River. Projects Not Yet Implemented Are Largely Part of CERP and Are Crucial to Achieving Overall Restoration Goals

Of the 72 restoration projects not yet implemented—in other words that  are in design, planning, or not yet started—53 are CERP projects that are  expected to be completed in the later years of the restoration effort and  will provide benefits such as increased habitat for native species,  improved water flow, and additional water for restoration as well as other  water-related needs. State water quality projects. Funding constraints. While currently scheduled for  completion in 2009, agency officials stated that they do not expect this  project to be completed until at least 2011. Of this total, federal agencies provided $2.3 billion and Florida  provided $4.8 billion. While federal agencies and Florida provided about $2.3 billion during fiscal  years 1999 through 2006 for CERP projects, this amount was about $1.2  billion less than they had estimated needing for these projects over this  period. As figure 5  shows, however, federal CERP funding fell significantly short in each year  during fiscal years 1999 through 2006—by a total of $1.4 billion. Although Estimated Restoration Costs Have Increased Since 2000, Total Cost Estimates Are Incomplete and Likely to Rise

Between July 31, 2000, and June 30, 2006, the total estimated cost for the  South Florida ecosystem restoration effort grew by 28 percent, from $15.4  billion to $19.7 billion. However, the cost estimate for the restoration effort is likely to increase  even more, in part because the current estimate does not include the costs  for the remaining land acquisitions and final design cost estimates for  CERP projects, which are not yet known. Additional Interfaces Are Needed to Enhance Models’ Usefulness

We determined that at least 21 of the 27 primary models have interfaces  that allow the models to interact with other models and provide a more  comprehensive and accurate assessment of the ecosystem. However, the process that participating agencies  have used so far to make sequencing decisions for these projects, and in  particular for the CERP projects, has been governed largely by funding  availability and technical dependencies and constraints among projects,  not the full range of criteria that the Corps developed under WRDA 2000. These criteria were not fully applied when sequencing decisions were  made for the CERP projects in 2005. Recommendations for Executive Action

Because the correct sequencing of CERP projects is essential to the  overall success of the restoration effort, we are recommending that the  Secretary of the Army direct the Corps of Engineers to obtain the key data  that are needed to ensure that all required sequencing factors are  appropriately considered when deciding which projects to implement. Appendix I: Objectives, Scope, and Methodology

Given the complexity and enormity of the South Florida ecosystem  restoration, we were asked to review the current status of the effort,  focusing specifically on the (1) status of restoration projects and their  expected benefits; (2) factors that influence the sequencing of project  implementation; (3) amount of funding provided to the restoration effort  since 1999; (4) extent to which cost increases have occurred and the  reasons for these increases; and (5) primary mathematical models used to  guide the restoration effort and the extent to which these models have  interfaces. Also simulates  water quality.
Why GAO Did This Study

The South Florida ecosystem covers about 18,000 square miles and is home to the Everglades, a national resource. Over the past 100 years, efforts to manage the flow of water through the ecosystem have jeopardized its health. In 2000, a strategy to restore the ecosystem was set; restoration was expected to take at least 40 years and cost $15.4 billion. The restoration comprises hundreds of projects, including 60 key projects known as the Comprehensive Everglades Restoration Plan (CERP), to be undertaken by a partnership of federal, state, local, and tribal governments. Given the size and complexity of the restoration, GAO was asked to report on the (1) status of project implementation and expected benefits, (2) factors that determine project sequencing, (3) amount of funding provided for the effort and extent that costs have increased, and (4) primary mathematical models that guide the restoration.

What GAO Found

While many of the restoration effort's 222 projects have been completed or are ongoing, a core set of projects that are critical to the success of the restoration are behind schedule or not yet started. Specifically, 43 projects have been completed, 107 are being implemented, and 72 are in design, in planning, or are not yet started. The completed projects will provide improved water quality and additional habitat for wildlife, and the ongoing projects will also help restore wildlife habitat and improve water flow within the ecosystem. However, the projects most critical to the restoration's overall success--the CERP projects--are among those that are currently being designed, planned, or have not yet been started. Some of these projects are behind schedule by up to 6 years. Despite project delays, officials believe that significant progress has been made in acquiring land, constructing water quality projects, and restoring a natural water flow to the Kissimmee River--the headwater of the ecosystem. In addition, many of the policies, strategies, and agreements required to guide the restoration in the future are now in place. To help provide further momentum to the restoration, Florida recently began expediting the design and construction of eight key projects, with the hope that they would immediately benefit the environment, enhance flood control, and increase water supply. There are no overarching sequencing criteria that restoration officials use when making implementation decisions for all 222 projects that make up the restoration effort. Instead, decisions for 162 projects are driven largely by the availability of funds. For the remaining 60 projects--which are among the most critical to the success of the restoration effort--the Corps of Engineers and the Congress established criteria to ensure the goals and purposes of CERP are achieved. However, the sequencing plan developed for these projects in 2005 is not consistent with the criteria established by the Corps. Therefore, there is little assurance that the plan will be effective. From fiscal years 1999 through 2006, the federal government contributed $2.3 billion, and Florida contributed $4.8 billion, for a total of about $7.1 billion for the restoration. However, CERP funding was about $1.2 billion short of the funds originally projected for this period. In addition, the total estimated costs for the restoration have increased by 28 percent--from $15.4 billion in 2000 to at least $19.7 billion in 2006. More importantly, these cost estimates do not represent the true costs for the overall restoration effort because they do not include all cost components for a number of projects. There are 27 primary mathematical models that guide the restoration effort. These include (1) hydrological, (2) water quality, and (3) ecological models. Although 21 of the 27 models are able to interface with other models and provide a more comprehensive pictureof the impact of restoration efforts on the ecosystem, many agency officials stated that additional interfaces are needed. Because coordinating the development of these interfaces is resource intensive, it has been a low priority for the agencies.