Adaptive Management for Ecosystem Restoration: Analysis and Issues for Congress

Congressional Research Service (CRS) | March 4th, 2011

Adaptive management is the process of incorporating new scientific and programmatic information into the implementation of a project or plan to ensure that the goals of t

Adaptive management is the process of incorporating new scientific and programmatic information into the implementation of a project or plan to ensure that the goals of the activity are being reached efficiently. It promotes flexible decision-making to modify existing activities or create new activities if new circumstances arise (e.g., new scientific information) or if projects are not meeting their goals. The complex and dynamic nature of ecosystems make their restoration and management amenable to an adaptive management approach, and the concept is being implemented at scales that include entire regions or river basins. Adaptive management has been used to guide several major ecosystem restoration efforts with involvement by the federal  government, including those on the Colorado and Platte rivers. Some of these adaptive management efforts have been specifically authorized by Congress, whereas other efforts have been formulated by agencies. Adaptive management has also been proposed as a guiding principle for several new and ongoing major restoration efforts, including those in the Chesapeake Bay and Lake Tahoe. The concept of adaptive management is straightforward, but its implementation can be difficult. A preliminary review of federal adaptive management efforts related to ecosystem restoration projects suggests that governance structures, management protocol and other factors vary widely.  Additionally, the scope and timing of efforts employing the term “adaptive management” seems  to vary among these projects. Where adaptive management has been implemented, it has encountered challenges. While adaptive management theoretically uses the best available science and monitoring to guide a project or program towards its stated goals, in practice the process can be affected by a number of outside factors. As the number of federal adaptive management efforts grows, Congress may revisit its role in shaping adaptive management programs in legislation. Some argue that Congress should do more to provide specific direction for major adaptive management initiatives in order to make adaptive management more consistent among these efforts. Others contend that Congress should allow federal agencies or restoration governing bodies to shape their own adaptive management programs, thus providing them with flexibility to match their program to their restoration needs. In addressing adaptive management, Congress may face decisions regarding the implementation guidelines and authorizations it provides these efforts, funds to establish and carry out these programs, and oversight issues. This report provides an introduction to the concept of adaptive management. It focuses on the application of this concept to large, freshwater aquatic ecosystem restoration projects with multiple stakeholders. A summary of the benefits and drawbacks of adaptive management for these projects is provided, along with analysis of potential issues associated with various governance models for these efforts. The potential role for Congress in addressing adaptive management is also discussed. As an appendix, the report summarizes the structure and implementation of federal adaptive management efforts to date five ecosystems: Glen Canyon/Colorado River, Platte River, Lower Colorado River, Missouri River, and Florida Everglades.

Adaptive Management of Natural Resources: Theory, Concepts, and Management Institutions

U.S. Department of Agriculture (USDA) | July 19th, 2005

This report reviews the extensive and growing literature on the concept and application of adaptive management. Adaptive management is a central element of the Northwest

This report reviews the extensive and growing literature on the concept and application of adaptive management. Adaptive management is a central element of the Northwest Forest Plan and there is a need for an informed understanding of the key theories, concepts, and frameworks upon which it is founded. Literature from a diverse range of fields including social learning, risk and uncertainty, and institutional analysis was reviewed, particularly as it related to application in an adaptive management context. The review identifies opportunities as well as barriers that adaptive management faces. It concludes by describing steps that must be taken to implement adaptive management.

Adaptive Management of Renewable Resources

Macmillan Publishing Company | July 1st, 1986

In Adaptive Management of Renewable Resources, noted theoretician Carl Walters challenges the traditional approach to dealing with uncertainty in the management of su

In Adaptive Management of Renewable Resources, noted theoretician Carl Walters challenges the traditional approach to dealing with uncertainty in the management of such renewable resources as fish and wildlife. He argues that scientific understanding will come from the experience of management as an ongoing, adaptive, and experimental process, rather than through basic research or the development of ecological theory. In the opening chapters, Walters reviews approaches to formulating management objectives as well as models for understanding how policy choices affect the attainment of these objectives. In subsequent chapters he presents various statistical methods for understanding the dynamics of uncertainty in managed fish and wildlife populations and for seeking optimum harvest policies in the face of uncertainty. Walters concludes with a look at prospects for adaptive management of complex systems, emphasizing such human factors involved in decision making as risk aversion and conflicting objectives as well as biophysical factors. Throughout the text he uses dynamic models and Bayesian statistical theory as tools for understanding the behavior of managed systems, and he illustrates these tools with simple graphs and plots of data from representative cases. This text/reference will serve researchers, graduate students, and resource managers who formulate harvest policies and study the dynamics of harvest populations, as well as analysts (modelers, statisticians, and stock assessment experts) who are concerned with the practice of policy design.

An appraisal of adaptive management planning and implementation in ecological restoration: Case studies from the San Francisco Bay Delta, USA

Ecology and Society (E&S) | July 1st, 2016

Adaptive management has been defined and redefined in the context of natural resource management, yet there are few examples of its successful application in ecological

Adaptive management has been defined and redefined in the context of natural resource management, yet there are few examples of its successful application in ecological restoration. Although the 2009 Delta Reform Act now legally requires adaptive management for all restoration efforts in the Sacramento-San Joaquin Delta, in California, USA, projects in this region still encounter problems with implementation. We used a comparative case study analysis to examine adaptive management planning and implementation both in and around the Delta, assessing not only why adaptive management is not yet well-implemented, but also what changes can be made to facilitate the adaptive management approach without sacrificing scientific rigor. Adaptive management seems to be directly and indirectly affected by a variety of challenges and convoluted by ambiguity in both planning documents and practitioner’s interpretations of the concept. Addressing these challenges and ambiguities at the project level may facilitate the adaptive management process and help make it more accessible to practitioners.

Analog Model Study of the Ground-Water Basin of the Upper Coachella Valley, California

U.S. Geological Survey (USGS) | July 18th, 1974

An analog model of the ground-water basin of the upper Coachella Valley was constructed to determine the effects of imported water on ground-water levels. The mod

An analog model of the ground-water basin of the upper Coachella Valley was constructed to determine the effects of imported water on ground-water levels. The model was considered verified when the ground-water levels generated by the model approximated the historical change in water levels of the ground-water basin caused by man's activities for the period 1936-67. The ground-water basin was almost unaffected by man's activities until about 1945 when ground-water development caused the water levels to begin to decline. The Palm Springs area has had the largest water-level decline, 75 feet since 1936, because of large pumpage, reduced natural inflow from the San Gorgonio Pass area, and diversions of natural inflows at Snow and Falls Creeks and Chino Canyon starting in 1945. The San Gorgonio Pass inflow had been reduced from about 13,000 acre-feet in 1936 to about 9,000 acre-feet by 1967 because of increased ground-water pumpage in the San Gorgonio Pass area, dewatering of the San Gorgonio Pass area that took place when the tunnel for the Metropolitan Water District of Southern California was drilled, and diversions ofsurface inflow at Snow and Falls Creeks. In addition, 1944-64 was a period of below-normal precipitation which, in part, contributed to the declines in water levels in the Coachella Valley. The Desert Hot Springs, Garnet Hill, and Mission Creek subbasins have had relatively little development; consequently, the water-level declines have been small, ranging from 5 to 15 feet since 1936. In the Point Happy area a decline of about 2 feet per year continued until 1949 when delivery of Colorado River water to the lower valley through the Coachella Canal was initiated. Since 1949 the water levels in the Point Happy area have been rising and by 1967 were above their 1936 levels. The Whitewater River subbasin includes the largest aquifer in the basin, having sustained ground-water pumpage of about 740,000 acre-feet from 1936 to 1967, and will probably continue to provide the most significant supply of ground water for the upper valley. The total ground-water storage depletion for the entire upper valley for 1936-67 was about 600,000 acre-feet, an average stor age decrease of about 25,000 acre-feet per year since 1945. Transmissivity for the Whitewater River subbasin ranges from 360,000 gal- lons per day per foot (near Point Happy) to 50,000 gallons per day per foot, with most of the subbasin about 300,000 gallons per day per foot. In contrast, the transmissivities of the Desert Hot Springs, Mission Creek, and Garnet Hill sub-basins generally range from 2,000 to 100,000, but the highest value, beneath the Mission Creek streambed deposits, is 200,000 gallons per day per foot; the transmissivity for most of the area of the three subbasins is 30,000 gallons per day per foot. The storage coefficients are representative of water-table conditions, ranging from 0.18 beneath the Mission Creek stream deposits to 0.06 in the Palm Springs area. The model indicated that the outflow at Point Happy decreased from 50,000 acre-feet in 1936 to 30,000 acre-feet by 1967 as a result of the rising water levels in the lower valley. The most logical area to recharge the Colorado River water is the Windy Point-Whitewater area, where adequate percolation rates of 2 4 acre-feet per acre per day are probable. The Whitewater River bed may be the best location to spread the water if the largest part of the imported water can be recharged during low-flow periods. The area in sec. 21, T. 2 S., R. 4 E., would be adequate for the smaller quantities of recharge proposed for the Mission Creek area. Projected pumpage for the period 1968-2000 was programed on the model with the proposed recharge of Colorado River water for the same period. The model indicated a maximum water-level increase of 200 feet above the 1967 water level at Windy Point, the proposed recharge site, by the year 2000, a 130-foot increase by 1990, and a 20-foot increase by 1980. The model indicated that the proposed quantities of recharge will beneficially affect the ground-water system to Palm Desert by 1980, to Point Happy by 1990, and possibly to the Coachella Canal by 2000. The model indicated that the upper and lower valleys are within the same hydrologic system, and it has been proposed that the model be extended to the Salton Sea. On the basis of the available analyses, changes in the quality of ground water in the Whitewater River subbasin after recharge apparently will be, as a first approximation, proportional to the ratio in which the quantity of recharge and the quantity of ground water are mixed. Where mixing does not occur, the quality of the recharge water will probably not be greatly changed by ion-exchange phenomenon.

Annual Report of Activities Water Year 2018 Stanislaus Operations Group (SOG)

Delta Stewardship Council (Delta Council) | November 1st, 2018

Brackish Water Desalination Facility Project

Delta Stewardship Council (Delta Council) | April 1st, 2020

The City of Antioch (City) is proposing the Brackish Water Desalination Project (Project), which consists of the construction of a desalination facility at the City’s

The City of Antioch (City) is proposing the Brackish Water Desalination Project (Project), which consists of the construction of a desalination facility at the City’s water treatment plant (WTP) with the capacity to produce up to 6 million gallons per day (mgd) of finished water; demolition of the existing San Joaquin River intake pump station; construction of a new intake pump station; approximately 3,000 feet of pipeline from the existing raw water pipeline underneath Lone Tree Way to the City’s WTP to allow a direct connection to maximize use of existing infrastructure; and approximately 4 miles of pipeline from the desalination facility to the Delta Diablo wastewater treatment plant (WWTP) to discharge brine with the WWTP effluent through the existing Delta Diablo outfall to New York Slough. The Project facilities would be located in the cities of Antioch and Pittsburg, California (Figure 1), at the western edge of the San Joaquin- Sacramento Delta (Delta). The main objectives of the Project are to improve water supply reliability and water quality for its customers; develop a reliable and drought-resistance water source to reduce dependency on purchased water supplies; maximize and preserve the use of the City’s pre-1914 water rights; and provide cost effective operational flexibility for the City.

California Salmon Strategy for a Hotter, Drier Future: Restoring Aquatic Ecosystems in the Age of Climate Change

California Department of Fish and Wildlife (CDFW) | January 20th, 2024

The infrastructure built generations ago in California continues to limit salmon migration, and some dams that remain on the landscape are well beyond their useful life.

The infrastructure built generations ago in California continues to limit salmon migration, and some dams that remain on the landscape are well beyond their useful life. In the Central Valley, large dams were built starting in the early 1900s on almost all major rivers. Those dams now block salmon access to over 90 percent of their historical spawning and rearing habitat higher in mountain streams.

Can Los Osos Valley Groundwater Basin Provide a Sustainable Water Supply?

California State University, Monterey Bay (CSUMB) | September 16th, 2010

The aquifers underlying the community of Los Osos in California are impaired by nitrate pollution from septic systems (shallow aquifers) and saltwater intrusion f

The aquifers underlying the community of Los Osos in California are impaired by nitrate pollution from septic systems (shallow aquifers) and saltwater intrusion from overdraft (lower aquifers). The development of a centralized waste water system, now in the final pre- construction stages, is proceeding concurrently with an adjudicated basin planning process involving local water purveyors in an effort to develop a management plan for a sustainable basin and water supply. Development of the wastewater system aimed at protecting the shallow aquifer has highlighted the need for a comprehensive groundwater basin management plan that focuses the County, the local water purveyors, the residents, and resource agencies on a common set of actions to stop seawater intrusion and protect the entire basin. The final basin management plan will be scrutinized and critiqued as a potential model for myriad other hydrologically independent communities that are, or will soon be, undergoing the similar quest for reliable water. Stakeholders in the Los Osos Valley Water Basin have the opportunity to lead coastal California on the difficult path toward sustainable water supply through creative local solutions that do not presume the long-term viability of imported water or desalination. While there are a number of detailed analyses and suggested actions in this report, the overarching conclusions/recommendations include: The saltwater intrusion models used in the draft EIR and technical memoranda (TMs) recently developed for the purveyor basin planning process attempt to balance saltwater intrusion against inputs and outputs to and from the aquifers. The net groundwater extraction amounts simulated in the models (corresponding to the purported safe yields) are considered aggressive (too much extraction) because they do not stabilize, or result in seaward migration, of the saltwater/freshwater interface (toward the northwest). In fact, the TM safe yield may allow the saltwater to move inland, especially if California climate becomes drier, as projected by State Government. Modeling results presented in our report indicate that if rainfall patterns persist as they have in the past, there is a reasonable chance that saltwater intrusion will progress farther, rather than remain stable, under anticipated pumping conditions. Further investigation is recommended to resolve uncertainties associated with the TM safe yields, including permeability of the regional (AT2) aquitard, how the AT2 affects lower aquifer recharge, and whether sufficient recharge will occur to prevent seawater intrusion in the upper aquifer. These uncertainties are under- appreciated in the EIR and TMs. We recommend the development of a “contingency plan” that allows flexible adaptive management to address unintended consequences that may occur following the implementation of the Los Osos Valley Wastewater Plan. Contingency plans identify mission-critical sections of the plan that have uncertainties, recommend monitoring to ascertain progress of the plan, and define remedial actions that will mitigate various unintended consequences, including divergence from, or failure of the plan. Several mission-critical arenas are discussed in the report. Rooftop rainwater harvesting and low impact development (LID) options could produce a substantial amount of water for local irrigation, reducing potable water use, while also augmenting groundwater recharge. Some LID alternatives, e.g., rain gardens and vegetated swales, can also provide attractive low-water using landscape features that may also help Los Osos residents adapt to the potential changes in groundwater levels and soil moisture content resulting from project implementation that may affect landscaping. Both on-site and community LID features will also reduce pollution of surface waters in the area. While the method used to calculate potential basin recharge from rainwater and LID features in this report is inconclusive, it suggests that the benefits of these measures may be considerable. Rainwater harvesting and LID are proven technologies that should be considered on a broad basis in the Los Osos Valley to help balance the basin and adapt to potential impacts from the project. Treatment wetlands can provide economical, efficient waste water treatment systems and/or the means to provide additional treatment, storage, and recharge of the groundwater basin. They also provide habitat and quality of life benefits (open space and passive recreational opportunities, such as hiking trails). Nitrate removal in wetlands has been studied in small scale experiments in Monterey County, has been implemented in large scale applications with positive success. Wetlands to treat surface water and wastewater have been used successfully in many communities around the world. We recommend an emphasis on agricultural exchange to maximize its benefits on seawater intrusion and help balance the basin. Tertiary-treated waste water is safe for irrigation and can reduce groundwater pumping, as well as energy and fertilizer use for farmers, with related costs savings. When well water from farms is exchanged for recycled water, potable water can be used to offset pumping causing seawater intrusion. While it is best to balance the hydrologic budget using resources within the basin, there is also an option to trade agricultural-grade treated water to regional farms in exchange for drinking grade water from wells outside the basin if ample water reserves are developed in the future. The draft Los Osos Valley sustainable water basin management plan, “Achieving a sustainable Los Osos Valley Water Basin: Framework for a 21st century basin management plan” (Wimer 2009) presents realistic, well-supported solutions for addressing the water needs of the Los Osos Community using sustainable, water saving and LID methods while preserving the basin for future use. The plan integrates methods reviewed in this report (rainwater harvesting, LID, and agriculture exchange), with urban reuse and intensive indoor and outdoor conservation to balance the basin and provide flows to sensitive ecosystems, with margins of safety that also address current and future uncertainties. We recommend that the plan is further developed, possibly with the help of water use efficiency expert, and considered for implementation. To answer the question posed by the title--yes, Los Osos can become a model of sustainable water use for coastal California if stakeholders implement reasonable conservation measures to complement an appropriate waste water treatment strategy and an adaptive management plan. The great number of uncertainties in the system makes any plan “experimental.” Given the uncertainties, due diligence will include erring on the side of caution (being conservative, not aggressive, in planned groundwater production), and devising a realistic contingency plan that includes adaptive management strategies. The Advanced Watershed Science and Policy (ENVS 660) graduate course at California State University Monterey Bay produced this report. It presents the results of extensive literature review, synthesis, and new analyses. The breadth of the report spans many of the key water supply issues facing the people of the Los Osos Valley. It provides information that can help this region move toward a sustainable water supply through innovative waste water management and sound conservation measures.

Collateral Damage: A citizen’s guide to fish kills and habitat degradation at the state and federal water project pumps in the Delta

Bay Institute | March 1st, 2012

Large-scale fish kills and habitat destruction aren’t an unusual occurrence at the giant federal and state pumps that export water from the Sacramento-San Joaquin Delta

Large-scale fish kills and habitat destruction aren’t an unusual occurrence at the giant federal and state pumps that export water from the Sacramento-San Joaquin Delta to agribusinesses and cities in the southern half of the state. These events are business as usual. • Every day, between 870 and 61,000 fish – including from 200 to 42,000 native and endangered fishes – are “salvaged” at the pumps. Most die in the process. • On average, over 9 million fish – representing the twenty fish species considered in this report – are “salvaged” each year at the pumps. As many as 15 million fish of all species encountered are “salvaged” each year. • Up to 40% of the total population of the endangered delta smelt and 15% of the endangered winter-run population of Chinook salmon are killed at the pumps in some years. In the first half of 2011, over 8.6 million splittail were salvaged. • Salvage estimates drastically underestimate the problem. The numbers do not factor in the results of “indirect” mortality, as high levels of export pumping disrupt fish migration, shrink the amount of non-lethal habitat available to fish species, and remove vast amounts of biomass, including fish eggs and larvae too small to be screened at the pumps. • Export pumping causes the lower San Joaquin River to flow backwards most of the year and removes the equivalent of 170 railroad boxcars of water – and the accompanying fish, other organisms, and nutrients – from the Delta ecosystem every minute. • Large numbers of fish being entrained is a problem even for species that are not currently listed as “endangered.” Killing large numbers of fish year after year cuts off population growth in response to favorable conditions and can start the species on a downward path to extinction. As the species declines, the population impacts of entrainment become proportionately larger. • Entrainment is a real problem. But the same interests in the Delta export community who claim that it isn’t also back constructing expensive new conveyance facilities such as a peripheral canal or tunnel to solve the problem that they say doesn’t exist.