Comprehensive Everglades Restoration Plan (Florida): cost estimates, spending and National Academies reviews
- The record does not name which of my species, waters, soils or forests were harmed.
- Government and regulators US Army Corps of Engineers (as reported by CRS): No federal investment in CEPP North infrastructure until the effluent limit is met. Congressional Research Service
- Government and regulators State of Florida (as reported by CRS): Proceeding with CEPP North construction before an attainment determination. Congressional Research Service
Congress approved the Comprehensive Everglades Restoration Plan in 2000 as a framework for the federal government and Florida to restore the Everglades, originally over 50 projects over 30 years at US$8.2 billion. The latest estimate in the sources is US$23.2 billion over about 50 years; through FY 2024 the federal government spent US$3.2 billion and Florida US$2.8 billion on CERP construction. National Academies reviews record progress and unresolved water-quality and reporting gaps.
CRS (January 2025), citing the most recent report to Congress: about 50 years from authorization, in FY 2020 dollars (US$26.9 billion in FY 2023 dollars). The original 2000 estimate was US$8.2 billion in FY 2000 dollars.
Status As of January 2025: the projected cost is US$23.2 billion over about 50 years; seven CERP projects were under construction in FY 2024 and assessment of attainment of the phosphorus effluent limit was due to begin in 2026.
What happened
The Water Resources Development Act of 2000 approved the Comprehensive Everglades Restoration Plan (CERP), described by the Congressional Research Service (CRS) as "a framework under which the federal government and the State of Florida are attempting to restore the Everglades". CRS wrote that by the close of the 1900s the ecosystem "was approximately half its historical size". GAO described the plan in September 2000 as "a conceptual framework for improving the quality, quantity, timing, and distribution of water", with 24 of its 66 projects aimed at water quality, and recorded the Corps of Engineers' then-current estimate at US$7.8 billion, shared equally by the federal government and Florida. GAO warned of "too many uncertainties to estimate" the cost of future water quality projects and recommended that the Corps add a means of reporting cumulative changes in cost and progress to Congress.
CRS recorded the estimates over time (Table 1 of its October 2017 report): US$8.2 billion in the original 1999 estimate, US$10.9 billion in the 2004 update, US$13.5 billion in 2009 and US$16.4 billion in 2014. In January 2025 CRS wrote that the most recent report to Congress "projected CERP would take approximately 50 years from its authorization to implement at a total cost of $23.2 billion" (FY 2020 dollars), "due to inflation, changes in project scope and schedule, and new project authorizations", against an original plan of over 50 projects over 30 years at US$8.2 billion (FY 2000 dollars). CRS wrote that none of the original estimated completion dates in the conceptual plan had been met as of the end of 2016. It recorded that, through FY 2024, the federal government had spent US$3.2 billion and the State of Florida US$2.8 billion on CERP construction projects (nominal dollars, from cost-share transparency reporting), and that the federal government had spent approximately US$1.0 billion on non-CERP construction projects. CRS noted that the spending figures are nominal and that the cost estimates use different base years, so they are not directly comparable.
Project status in FY 2024, as listed by CRS, included two Corps projects completed or partly completed (C-111 Spreader Canal Western; Site 1 Impoundment phase 1), seven under construction (including Picayune Strand, Indian River Lagoon-South, C-43 West Storage Basin Reservoir and the Central Everglades Planning Project), three awaiting construction and three studies in progress. CRS wrote that "USACE has specified that no federal investment in CEPP North infrastructure can occur until the effluent limit is met", that the State of Florida was proceeding with CEPP North construction before an attainment determination, and that assessment of attainment of the phosphorus effluent limit was required to begin in 2026.
The National Academies have reviewed CERP biennially under the 2000 Act. As summarised in the Tenth Biennial Review (released 1 October 2024), the second review (2008) found "no CERP projects have been completed to date"; the third (2010) wrote that the goals "will be enormously costly and will take decades at least"; the eighth (2020) found progress assessments limited by weak monitoring; the ninth (2022) found that "record funding levels had accelerated" implementation "to a remarkable pace". The tenth review's summary reported "record-high levels of federal and state funding" in FY 2022 and FY 2023, six CERP projects under construction, one CERP project and two major components complete and another nearly finished, a 75 percent reduction in Melaleuca-dominated area, and total phosphorus concentrations in stormwater treatment area outflows trending downward, with only STA-3/4 currently meeting the water quality-based effluent limit. It also wrote that the "greatest danger is making no attempt to plan for climate change" and that CERP has no centralized multi-agency reporting mechanism.
- 1999Original CERP cost estimate of US$8.2 billion (FY 2000 dollars; CRS table)
- 2000Congress approves CERP in the Water Resources Development Act of 2000; GAO reports the Corps' US$7.8 billion estimate and recommends reporting of cumulative cost changes (20 September)
- 2004CERP cost update of US$10.9 billion
- 2008National Academies second biennial review: no CERP projects completed to date
- 2009CERP cost update of US$13.5 billion
- 2014CERP cost update of US$16.4 billion
- 2016As of the end of FY 2016 the federal government had provided in excess of US$1.2 billion for CERP; none of the original estimated completion dates met
- 2022National Academies ninth review: record funding levels accelerated implementation to a remarkable pace
- 2024National Academies tenth biennial review released (1 October); through FY 2024 federal spending of US$3.2 billion and Florida spending of US$2.8 billion on CERP construction (CRS)
- 2025CRS reports a projected US$23.2 billion cost over about 50 years (14 January)
- 2026Assessment of attainment of the phosphorus effluent limit required to begin
What was said
“a conceptual framework for improving the quality, quantity, timing, and distribution of water”
“too many uncertainties to estimate”
“will be enormously costly and will take decades at least”
“record-high levels of federal and state funding”
“greatest danger is making no attempt to plan for climate change”
“USACE has specified that no federal investment in CEPP North infrastructure can occur until the effluent limit is met”
Where accounts differ
Each party's account, side by side, with its source. The record does not settle these points; it shows them.
Current estimate of US$7.8 billion, shared equally by the federal government and Florida; changes could increase the total.
US General Accounting Office (now GAO)US$8.2 billion over 30 years at the outset (FY 2000 dollars); latest projection US$23.2 billion over about 50 years (FY 2020 dollars), due to inflation, changes in scope and schedule and new project authorizations.
Congressional Research ServiceNo federal investment in CEPP North infrastructure until the effluent limit is met.
Congressional Research ServiceProceeding with CEPP North construction before an attainment determination.
Congressional Research ServiceHow it looked
Shown
- The plan described as "a framework under which the federal government and the State of Florida are attempting to restore the Everglades", originally over 50 projects over 30 years at US$8.2 billion.Congressional Research Service · Congressional Research Service
- Restoration described as moving at "a remarkable pace" on record funding.National Academies, ninth biennial review (2022), as summarised in the tenth review · National Academies of Sciences, Engineering, and Medicine
Recorded
- Cost estimates in CRS tables and text: US$8.2 billion (1999), US$10.9 billion (2004), US$13.5 billion (2009), US$16.4 billion (2014), US$23.2 billion (latest, FY 2020 dollars).
- Through FY 2024: federal spending of US$3.2 billion and Florida spending of US$2.8 billion on CERP construction projects (nominal dollars).
- National Academies (2008): no CERP projects completed to date. National Academies (2024): one CERP project and two major components complete, six under construction.
- National Academies (2024): only STA-3/4 currently meets the water quality-based effluent limit for phosphorus; a 75 percent reduction in Melaleuca-dominated area.
- No source reviewed gives a system-wide measure of ecological recovery (flows, wildlife) attributable to CERP.
In nature's name
Promised
- “a framework under which the federal government and the State of Florida are attempting to restore the Everglades” — Congressional Research Service, describing the plan approved in the Water Resources Development Act of 2000 (14 January 2025) Congressional Research Service
- “a conceptual framework for improving the quality, quantity, timing, and distribution of water” — GAO, describing the Corps of Engineers' plan (20 September 2000) US General Accounting Office (now GAO)
Money moved in nature's name
| What | Kind | Amount | Period |
|---|---|---|---|
| Projected total cost of CERP, latest report to Congress US Army Corps of Engineers and State of Florida (cost-shared) Congressional Research Service | Budget | $23.2bn estimate | projected |
| Original estimate of CERP total cost US Army Corps of Engineers and State of Florida (cost-shared) Congressional Research Service | Budget | $8.2bn estimate | 2000 estimate |
| Corps' estimate of plan cost US Army Corps of Engineers US General Accounting Office (now GAO) | Budget | $7.8bn estimate | 2000 |
| Federal spending on CERP construction projects US federal government Congressional Research Service | Spent | $3.2bn | through FY 2024 |
| State of Florida spending on CERP construction projects State of Florida Congressional Research Service | Spent | $2.8bn | through FY 2024 |
| Federal spending on non-CERP construction projects US federal government Congressional Research Service | Spent | $1bn estimate | through FY 2024 |
What was measured
The National Academies' reviews, requested by Congress and independent of the Corps, report project-level results (a 75 percent reduction in Melaleuca-dominated area; downward trends in phosphorus concentrations in stormwater treatment area outflows, with only STA-3/4 meeting the limit) and one CERP project and two major components complete. The sources reviewed give no system-wide measurement of ecological recovery attributable to CERP, and the summary states that CERP has no centralized multi-agency reporting mechanism.
Operation Ongoing · Seven CERP Corps projects under construction in FY 2024 (CRS). Congressional Research Service
Findings on record
- Official audit US General Accounting Office (GAO) (2000-09-20) · GAO T-RCED-00-297, Comprehensive Everglades Restoration Plan: “has not, however, included a means for reporting” US General Accounting Office (now GAO)
- Official audit National Academies, second biennial review (as summarised in the tenth review) (2008) · Progress Toward Restoring the Everglades: The Second Biennial Review - 2008: “no CERP projects have been completed to date” National Academies of Sciences, Engineering, and Medicine
- Official audit National Academies of Sciences, Engineering, and Medicine (2024-10-01) · Progress Toward Restoring the Everglades: The Tenth Biennial Review - 2024: “highlights significant recent restoration progress” National Academies of Sciences, Engineering, and Medicine
Who gained
Reached nature or the ground
Gained elsewhere
Responses on record
- US Army Corps of Engineers (2000; 2025): In 2000 the Corps' estimate was US$7.8 billion; GAO recommended that it add a means of reporting cumulative cost changes. CRS recorded in 2025 that the Corps has specified that no federal investment in CEPP North infrastructure can occur until the phosphorus effluent limit is met. · US General Accounting Office (now GAO)
- State of Florida (14 January 2025): CRS recorded that the state is proceeding with CEPP North construction before an attainment determination and expects its projects to be operational by the end of 2025. · Congressional Research Service
In court and with insurers
Lawsuits and rulings
Insurers
What nature saw
Nature's report opens this page. Below: further outcomes measured on the ground.
What we don't know
Nature
- Not measured Harm to nature: The record holds no measurement of harm to nature.
- Disputed Whether construction should proceed before the phosphorus limit is met
Accounts
- Disputed How much the plan costs and how long it takes
Record
- None on record None on record: a system-wide measurement of ecological recovery attributable to CERP. The National Academies summary reports project-level results (Melaleuca, phosphorus in stormwater treatment areas) and no centralized multi-agency reporting mechanism.
- None on record None on record: dollar totals and project counts in the tenth review's summary; the summary gives no dollar amounts.
- Unclear Disputed: the cost of the plan, given as US$7.8 billion (GAO, 2000), US$8.2 billion (1999 and FY 2000 dollars) and US$23.2 billion (FY 2020 dollars). CRS wrote that the spending figures are nominal and the estimates use different base years, so they are not directly comparable.
- Disputed Disputed: sequencing on the northern Everglades project. The Corps specified that no federal investment in CEPP North infrastructure can occur until the phosphorus effluent limit is met; Florida is proceeding with CEPP North construction before an attainment determination (CRS, 2025).
- None on record Not yet determined: attainment of the phosphorus effluent limit; assessment is required to begin in 2026.
Did the harm stop?
The sources reviewed do not report that the degradation of the ecosystem has stopped. The National Academies summary reports progress on projects and phosphorus trends in stormwater treatment areas, and the tenth review describes the Everglades as "dramatically degraded" in water quality, quantity, flow and distribution.
Who paid?
Costs are shared between the federal government and the State of Florida: through FY 2024 the federal government spent US$3.2 billion and Florida US$2.8 billion on CERP construction projects, and the federal government spent approximately US$1.0 billion on non-CERP construction (CRS, nominal dollars).
Sources
Government and regulators
- Recent Developments in Everglades Restoration (CRS IF11336, version 15), via EveryCRSReportCongressional Research Service · 2025-01-14
- Everglades Restoration: Federal Funding and Implementation Progress (CRS R42007), via EveryCRSReportCongressional Research Service · 2017-10-06
- Comprehensive Everglades Restoration Plan (GAO T-RCED-00-297), copy on Justia (not an official version)US General Accounting Office (now GAO) · 2000-09-20
- Progress Toward Restoring the Everglades: The Tenth Biennial Review - 2024 (briefing page)National Academies of Sciences, Engineering, and Medicine · 2024-10-01
- Progress Toward Restoring the Everglades: The Tenth Biennial Review - 2024, SummaryNational Academies of Sciences, Engineering, and Medicine · 2024-10-01
- Progress Toward Restoring the Everglades: The Tenth Biennial Review - 2024, appendix summarising earlier reviewsNational Academies of Sciences, Engineering, and Medicine · 2024-10-01
Connected cases
- US compensatory mitigation and conservation banking under the "no net loss" policy United States · 1988–2026
- US Army Corps of Engineers (Government) — here: Federal lead for CERP projects and author of the cost estimates reported to Congress; there: Issues section 404 permits, oversees compensatory mitigation and banks; co-author of the 1995 guidance and the 2008 rule
- US Government Accountability Office (GAO) (Public authority) — here: Reviewed the plan's cost and reporting in 2000; there: Audited Corps oversight of compensatory mitigation in 2005 and 2026
- Asbestos 524(g) bankruptcy trusts and J&J talc two-step United States · 1988
- US Government Accountability Office (GAO) (Public authority) — here: Reviewed the plan's cost and reporting in 2000; there: Source of the 2011 asbestos trust data
- Beach nourishment and armoring on Florida's loggerhead nesting beaches United States · 2011–2025
- US Army Corps of Engineers (Government) — here: Federal lead for CERP projects and author of the cost estimates reported to Congress; there: Sand placement covered by the 2015 opinion
- Chesapeake Bay Program: the 2010 TMDL, the 2025 goals and results United States · 2010–2026
- US Government Accountability Office (GAO) (Public authority) — here: Reviewed the plan's cost and reporting in 2000; there: Reviewed the Program's funding and reporting in 2005
- Fieldwood bankruptcy and US offshore decommissioning United States · 2024
- US Government Accountability Office (GAO) (Public authority) — here: Reviewed the plan's cost and reporting in 2000; there: Auditor; estimated liabilities
- Florida HB 1645 (2024): "climate change" removed from state energy policy United States · 2015–2024
- State of Florida (Government) — here: Non-federal sponsor sharing costs with the federal government; there: Enacted HB 1645 in 2024
- Kivalina village in Alaska still awaits relocation after 2008 suit against ExxonMobil United States · 1992–2026
- US Army Corps of Engineers (Government) — here: Federal lead for CERP projects and author of the cost estimates reported to Congress; there: Federal engineers who estimated erosion timelines and relocation costs
- Peabody, Patriot Coal and coal self-bonding United States · 2007–2020
- US Government Accountability Office (GAO) (Public authority) — here: Reviewed the plan's cost and reporting in 2000; there: US government auditor that recommended ending self-bonding
- PG&E wildfire settlement, tax deduction and Fire Victim Trust United States · 2018–2025
- US Government Accountability Office (GAO) (Public authority) — here: Reviewed the plan's cost and reporting in 2000; there: Reviewer of tax treatment of settlements (2005)
- US Conservation Reserve Program: annual rental payments to take cropland out of production United States · 1985–2026
- US Government Accountability Office (GAO) (Public authority) — here: Reviewed the plan's cost and reporting in 2000; there: Audited FSA's selection of CRP land in 2024
- US Defense Department PFAS costs top USD 9.3 billion at 718 installations United States · 2022–2025
- US Government Accountability Office (GAO) (Public authority) — here: Reviewed the plan's cost and reporting in 2000; there: Published the PFAS cost report
- US tax deductibility of environmental settlements (IRC 162(f)) United States · 2017
- US Government Accountability Office (GAO) (Public authority) — here: Reviewed the plan's cost and reporting in 2000; there: Auditor of the settlement sample (GAO-05-747)