charting new waters: a call to action to address u.s. freshwater challenges

8/8/2019 Charting New Waters: A Call to Action to Address U.S. Freshwater Challenges

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Preamble


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2Preamble

Building on its long history o catalyzing environmentaland community solutions and approaching issues withoutpreconceived ideas or fxed agendas, The Johnson Founda-tion at Wingspread convened a wide range o experts in aseries o working session con erences to better understandand bring national attention to the myriad challenges acingUnited States reshwater resources, and the most promisingsolutions to address them. Collectively entitled The JohnsonFoundation Freshwater Forum , the sessions reached acrossdisciplines and interest group a liations and involved morethan 100 experts who approach reshwater issues rom di er-ent vantage points, including climate science, municipal wa-ter management, ecosystem protection, agriculture and oodproduction, energy generation, manu acturing, public healthand more. The questions posed to these experts revolvedaround what it will take to achieve a sustainable and resilient

reshwater system by the year 2025, the approximate timeit will take or todays children to enter adulthood. On June9, 2010, leaders representing business, nongovernmentalorganizations, agriculture, academia, government, ounda-tions and communities convened at The Johnson FoundationFreshwater Summit to build on the fndings o The Freshwater Forum con erences and chart a new course or the uture o U.S. reshwater resources.

Throughout The Freshwater Forum sessions, there was broadconsensus among participants that our current path will,unless changed, lead us to a national reshwater crisis in the

oreseeable uture. This reality encompasses a wide array o challenges water pollution and scarcity; competing urban,rural and ecosystem water needs; climate change; environ-mental and public health impacts; and a variety o economicimplications that collectively amount to a tenuous trajec-tory or the uture o the nations reshwater resources.

While the nation has made much progress over the past cen-tury in addressing reshwater challenges, many still persist.Some challenges are acute and obvious. The severe droughtthat struck the southeast in 2007 le t Georgia, Alabama andFlorida locked in an interstate con ict over the manage-ment o Lake Lanier. 1 In Cali ornias Central Valley, a drought,economic recession and legal rulings to reallocate watersupplies to protect ecosystems resulted in water manage-ment decisions that contributed to lost jobs and revenue orthe regions agriculture industry in 2009. Competition amongagricultural, urban and environmental water uses in theCentral Valley remains a contentious situation. The 1993 Cryp-tosporidium outbreak in Milwaukee which contaminatedthe citys drinking water supply le t more than 400,000

Charting New Waters: A Call to Action to Address U.S. Freshwater

Challengesrepresents the culmination of an intensive collaborativeeffort that began in 2008.


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3Charting New Waters:

A Call to Action to Address U.S. Freshwater Challenges

residents ill and an estimated 69 people dead and resultedin an estimated $96.2 million in medical costs and productiv-ity losses. 2 The U.S. Environmental Protection Agency (EPA)

estimates that there are 240,000 water main breaks per yearin the United States. System breaks tend to increase substan-tially toward the end o a systems service li espan, which isevident in the Midwest where large utility breaks increased

rom 250 per year to 2,200 per year over a 19-year period. 3 In 2007, the Washington Suburban Sanitary Commissionreported 2,129 breaks in Montgomery and Prince GeorgesCounty, Maryland a 90-year record. 4 The U.S. GeologicalSurvey estimates that U.S. water distribution systems lose 1.7trillion gallons o water per year at an estimated annual costto the nation o $2.6 billion. 5

Other challenges are more subtle and chronic. The increasingpresence o endocrine-disrupting chemicals in our rivers anddrinking water supplies is an emerging concern and the sus-

pected cause behind 80 percent o male bass in the PotomacRiver now exhibiting emale sex traits. More than 90 percento the fve million people in the Washington, D.C., metro areaget their drinking water rom the Potomac, yet we have apoor understanding o the concentrations and long-termhuman health impacts o endocrine-disrupting chemicals indrinking water. 6 The United States leads the world in numbero crayfsh species, but hal are in jeopardy, and 40 percento reshwater fsh and amphibians are at risk. 7 The slow butsteady depletion o the Ogallala Aqui er (i.e., the High PlainsAqui er), the main source o groundwater or irrigating cropsin Americas breadbasket, has already le t parts o Texaswithout local water supplies. 8 Moreover, a 2003 survey by theU.S. General Accounting O ce revealed that at least 36 statewater managers expected to experience water shortages intheir states by 2013. 9

Meanwhile our growing population and changing envi-ronmental conditions continue to drive the nation towardinevitable and di cult reshwater management decisions.Many challenges will center on balancing municipal, ruraland ecosystem supply needs. We must ensure the long-termviability o sa e, a ordable and e cient ood productionwhile also meeting municipal and industrial water needs.We need to reduce the water demands and impacts o energygeneration while continuing to produce enough energy tosustain our economy. We must work to mitigate the causes o climate change and to adapt to its impacts on the hydrologiccycle, which pose serious risks to reshwater supply andquality across large areas o the nation. 10

U.S. Faces Mounting Water Quantity and Quality Challenges

Climate change is altering water supplies, and scien-tists predict it will further exacerbate water quantity challenges such as drought, flooding and reducedsnowpack storage. Under the business-as-usualscenario of demand growth, water supplies in 70

percent of U.S. counties may be threatened by climatechange and one-third may be at high risk by 2050. 11 Meanwhile, on the water quality side, 50 percent of our rivers and streams; 66 percent of our lakes, reser- voirs and ponds; and 36 percent of our wetlands areimpaired for at least some designated uses, includingmany for fishing and swimming. 12


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Freshwater Forum participants emphasized the broad scopeand urgency o reshwater problems in the United States,while underscoring that we are dealing with 21st century

reshwater problems using 20th century strategies and tech-nologies, and alling short. On a more optimistic note, theForum deliberations also made it clear that solutions to most,i not all, o our reshwater challenges are within reach. TheJohnson Foundation believes this is indeed the case, and thatthose solutions are more likely to be ound and implementedwhen smart, good-willed people with diverse expertise at-tack complex problems collaboratively. The Freshwater Forum af rmed this philosophy as participants rom all sectorsengaged in thought ul discussion, identi ying reshwater

challenges as well as innovative solutions with the cumula-tive potential to set the nation on a new trajectory towardsustainable and resilient reshwater resources. It has beensaid there are two ways to achieve change through crisis orthrough leadership. Freshwater is too important to our eco-nomic vitality, ecosystems, communities and national securityto wait or a crisis, so The Johnson Foundation at Wingspreadand our many partners and advisors have opted or leader-ship. Together we aim to harness the ingenuity and collectivespirit that de ne the United States and direct it toward vigor-ously addressing the nations reshwater challenges.

As the convenor o The Freshwater Forum and The Freshwater Summit , The Johnson Foundation is honored to present thisCall to Action to Address U.S. Freshwater Challenges . The vision,

principles and recommendations developed by the parties tothis Call to Action were designed to bring overdue attentionto our nations reshwater challenges and catalyze action toaddress them. The Call to Action will also serve as a roadmap

or the ongoing work o The Johnson Foundation, which iscommitted to using our time-honored convening expertiseand acilities to support the work that lies ahead. The Founda-tion looks orward to continuing to support collaborationamong the network o people that has coalesced around thisprocess, and to helping orge new relationships in pursuit o

sustainable and resilient U.S. reshwater resources.

Preamble


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A Vision for Sustainable and Resilient

U.S. Freshwater Resources


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Freshwater is as essential to human survival as the air webreathe. Since the origin o civilization, water has been acentral element and uni ying orce o society, economy and

culture. Major human population centers have always de-veloped near abundant sources o reshwater or example,Mesopotamia literally means land between two rivers.

Three essential [freshwater] goals aredependable and safe supplies for people,protection and management of theenvironmental systems through which

[freshwater] moves, and efficient water use. GILBERT F. WHITE 13

While these are widely understood truths, the United Stateshas made only modest progress toward meeting the reshwa-ter goals articulated by water management visionary GilbertWhite more than 25 years ago. Though we have come a longway since the landmark reshwater legislation o the 1970s,we will never meet Gilbert Whites three essential goals i we

continue to ollow our current trajectory.

We, the participants in The Johnson Foundation Freshwater Summit , see many opportunities to establish a more prom-ising uture or U.S. reshwater resources a uture that issustainable and resilient. We see a uture in which leaders inall sectors have the courage and tools to chart a new coursethat ensures access to clean reshwater or all Americans.We have a vision o institutions, organizations, communitiesand individuals who recognize that the health and sa ety o our natural and built reshwater systems warrant dedicated

attention, investment and action. Streamlined and efectiveregulation and en orcement, collaborative problem solv-ing, innovative local and regional strategies, technologicalinnovation, integrated policy and management solutions,and co-bene cial strategies and outcomes are the hallmarkso the new course we see or reshwater management andresources in the United States.

We envision

a future in which: Americas freshwater resources sustain our

economic and social needs while enhancingenvironmental quality for future generations.

Every region, state, town and citizen hasenough water to meet their basic needs.

Parents know the water coming from their tapswill safely quench their childrens thirst.

Every child, urban or rural, has a clean streamin which to play.

An abundance of fish and wildlife thrive in andaround our streams, rivers and lakes.

Grandparents can teach their grandchildren tofish, knowing both their bodies and souls willbe nourished.

And every person understands why a reliablesupply of freshwater is critical for all our basicneeds from food production to electric powergeneration.

In this future, our sustainable and resilient fresh-water resources reinforce Americas preeminenceas the land of opportunity, attracting new investment while providing an unparalleledquality of life.

A Vision 6


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Principles for Action


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The principles below represent truths held in common byFreshwater Summit participants. They illustrate why address-ing our reshwater challenges should be a national priority,

and what we need to consider when we take action so thatour vision o sustainable and resilient reshwater resources

or the United States will be realized.

We must act nowbecauseHealthy and livable communities need clean

and adequate freshwaterFreshwater is the critical link between public health andquality o li e. Access to clean and adequate reshwater isarguably the most direct path to improving public health,because water afects all domains o human health. How wemanage the orests and lands around our source waters and

the water systems and services that serve our communitiesdirectly afects the health o terrestrial reshwater ecosystemsand the estuaries and marine ecosystems they eed, as well asour physical and mental health and spiritual well-being. Every

U.S. community needs access to clean drinking water, as wellas adequate sur ace and groundwater resources or munici-pal, industrial, agricultural, recreational and ecological uses.We must reinvent how our cities, towns and rural communi-ties inter ace with reshwater, to sustain healthy and livablecommunities in the 21st century and beyond.

Reliable freshwater supplies are critical to U.S.economic security

Adequate and reliable reshwater supplies are an essentialunderpinning o U.S. economic security. Energy generation,manu acturing, ood production and many activities o dailyli e in America are dependent on access to reshwater. Anestimated 41 percent o the nations water withdrawals arebeing used or thermoelectric power generation, primarilycoal, nuclear and natural gas. 21 These power plants uel oureconomy, lighting cities and towns and powering our actories.

Public Health Depends On Clean Water

When piped water came to the United States in the

mid-19th century, instances of waterborne diseasessuch as cholera and typhoid fever escalated becausecontaminated water could be delivered to morepeople from a common source. Cholera epidemics inNew York City in 1832 and 1849 killed 8,500 people.In 1891 typhoid fever in Chicago killed 2,000. Theintroduction of chlorine in the early 20th century and a range of water pollution acts from the 1940s to1970s dramatically improved public health. Incidenceof typhoid deaths dropped to near zero by 1940. 14

Water Scarcity Impacts Energy Generation

In the last decade, water availability has begun to im-pact the reliability of power. In 2008, drought forcedthe temporary closure of a nuclear plant in BrownsFerry, Alabama, and shutdowns were threatenedacross the Southeast that summer. 15 16 The CaliforniaEnergy Commission created a policy in 2003 thatdiscourages the use of freshwater for power plantcooling. Power plant developers are responding by proposing projects that require less or no water. 17

Population Growth Drives Water Demand

The nations population is projected to increase to392 million by 2050 a 27 percent increase from thecurrent figure of around 307 million. 18 Our farmersand ranchers will need to produce food for these newmouths. Meanwhile, trends in water consumptionshow that, as our population has grown, the amountof water required for public supply municipal, com-

mercial and industrial purposes has increased aswell. Between 1950 and 2005, our population doubledand our water use for public supply tripled. 19 How-ever, as we have begun conservation measures, thisgap is closing; between 2000 and 2005, our populationincreased 5 percent while public supply withdrawalsincreased by just 2 percent. 20

Principles for Action 8


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Manu acturers are o ten water utilities largest customers,with cooling, process uses, cleaning, sanitation and steamgeneration being the most common water uses. Another 37

percent o U.S. reshwater withdrawals go toward irrigatedagriculture. 22 Agricultural communities are the oundationo a stable ood supply and integral to the nations economyand overall well-being. The United States agricultural sectoris a net exporter o ood, and provides a trade surplus thathelps recover American dollars spent on imported goods.With global ood demand predicted to double by 2030, con-tinued production in the agricultural sector is critical to ourlong-term economic security, as well as global ood security. 23 The traditions o Eastern water law and the Western doctrine

o prior appropriation, and the diferences between them,must be acknowledged and respected as we seek reshwatersolutions. Tourism is another key driver o many o our na-tions local economies, where vacationers go to sh, boat andswim in lakes, rivers and streams. Increasing water e ciencyin all sectors and ensuring that reshwater needs vital to oureconomic security are met into the uture at an acceptablecost should be national priorities. Our historically plenti ul

reshwater supply has aforded the nation an advantage inthe global marketplace, and we must act now with urgencyand ocus to ensure we maintain that market advantage.

Freshwater ecosystems have intrinsic valueand are fundamental to our natural heritageand economic well-being

Healthy reshwater ecosystems and species provide goodsand services or society, including water puri cation, oodand other quanti able bene ts. They also represent part o the nations natural heritage and have intrinsic value in ando themselves. U.S. reshwater biodiversity is exceptional

on a global level. For example, the southeastern UnitedStates alone possess more than 600 native sh species. 24 Yetmany o the nations reshwater species have already beenseverely impacted or are threatened by human activities.For example, we have the most reshwater mussels species,but two-thirds are at risk o extinction and 10 percent mayalready be extinct. 25 Freshwater mussels have long oferedvalue to humans as ood and raw material or making tools

and jewelry, and are now considered key indicators o waterquality and ecosystem health as they are sensitive to pollu-tion. But they also possess value within the ecosystems they

help constitute, providing ood or wildli e like muskrats andotters and acting as natural water puri ers. We must keepthe intrinsic value o ecosystems and species in mind as wedevelop and implement laws, regulations, policies and tech-nologies to manage, conserve, restore and protect reshwaterecosystems.

Ecosystems can experience abrupt, nonlinearchange

While ecosystem change is normally slow and incremental,scienti c evidence suggests ecosystems can change abruptly,with signi cant detrimental efects on ecological and humanwell-being. Nonlinear changes occur when pressure on a par-ticular ecosystem component crosses a threshold, sparkingaccelerated change that reverberates throughout the system.

Human activity is reducing the resilience o many naturalsystems and increasing the possibility o crossing ecologicalthresholds. Although science can con dently say that eco-logical thresholds exist, it is extremely di cult to predict atwhat point they will be crossed and whether the subsequentefects will be reversible. We must take a proactive, precau-tionary approach to oster the resilience o our reshwaterecosystems and avoid crossing ecological thresholds.


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When we act, we need to

Take bold steps and make intentional investmentsto transform our current trajectory toward freshwatercrisis into one toward sustainable and resilientfreshwater resources.

Support and empower visionary leaders at all scalesof society that champion freshwater and facilitatecollaboration across jurisdictions, disciplines andsectors to implement durable freshwater solutions.

Design context-sensitive freshwater solutions that ac-count for communities sociopolitical, economic andenvironmental dynamics and leverage local peoplessense of place, while adhering to relevant federal andstate laws and policies.

Consider the potential impacts of freshwater resourcesolutions on all people and places, including minority

and low-income urban and rural communities, andavoid solutions that benefit one sector, group or placeat the undue expense of another, including futuregenerations.

Seek robust co-beneficial solutions and triple-bottom-line outcomes that address environmental, economicand social equity challenges simultaneously in acost-efficient manner.

Generate sound science that accounts for the dynamicnature of freshwater systems and our emergingunderstanding of climate change impacts on waterthat can be shared in real-time to inform mitigation

and adaptive management strategies.

Employ inclusive, fair and transparent public partici-pation processes, including respectful government-to-government consultation with indigenous peoples.

Target performance-based incentives and standardstoward different freshwater users and innovators todrive solution-oriented behavioral and technological

change.

Identify, share, replicate and scale-up the bestfreshwater solutions from across the nation.


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Call to Action


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12Call to Action

We, the participants of The Johnson Foundation Freshwater Summit ,

collectively call on leaders in all sectors of society to address the

myriad challenges facing the United States freshwater resources.

Together we are representatives from business, nongovernmental

organizations, agriculture, academia, government, foundations and

communities. We are collaborating in our commitment to harness

American ingenuity and develop a suite of innovative, integrated

freshwater solutions that cut across traditional boundaries and

counteract the inertia that has developed around freshwater

management due to fragmented decision-making frameworks andother institutional obstacles. We urge other leaders to join us and

do their part to advance the implementation of sustainable and

resilient solutions to the full range of freshwater challenges we face.

The time to lead is now.


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Recommendations 14

We believe concerted implementation of the following consensus

recommendations will set the nation on the right course to realize

our vision of sustainable and resilient freshwater resources for

current and future generations of Americans. We encourage leaders

and actors in different sectors to adhere to the Principles for

Action stated above as implementation of these recommendations

is pursued. While we strongly support bold action and would like to

see rapid transformational change, we acknowledge the incremental

nature of decision making in a democratic society, and our recom-

mendations reflect that reality.


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Improve Coordinationof Freshwater ManagementAcross Scales and Sectors

Challenges and Rationale

Our nations overly complex system o reshwater governancehinders our ability to fx the ull range o problems we ace. Itis imperative that our system o national standards and over-sight allows or state and local actors to make and implement

reshwater management decisions that make sense in termso local watershed dynamics. At times their ability to do thisis impeded by a lack o coordination among ederal and stateagencies, each o which is acting according to its legislative

and regulatory mandates, but may not unction e ectivelyas a system. This lack o coordination can result in con usionat the state and local level, sometimes exacerbating the veryproblems they set out to solve. The missions and activitieso the agencies, organizations and local-level actors dealingwith reshwater issues need to be coordinated within andacross di erent sectors and scales o governance. Such coor-

dination will create the necessary oundation to design andimplement durable solutions that align with the principlesand recommendations in this Call to Action .

Convene a U.S. Freshwater Resources Commission

We believe the nation would greatly beneft rom a diverse,

multi-stakeholder commission to clari y and streamline theresponsibilities and roles o agencies at di erent levels o

reshwater governance. We recommend that an appropriateentity convene a high-level reshwater resources commissionwith a ocused mission, an explicit timeline with a clear startand end point or the completion o its work, and clear guide-lines or reporting its fndings. The overarching goal o


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the commission should be to propose solutions that increasethe integration and ef ciency o the existing patchwork o jurisdictional authorities overseeing management o the na-

tions reshwater resources. Potential convening models thatwould impart authority and credibility to this cross-sectore ort include a Presidential commission, a Congressionalcommission or a commission spearheaded by a private oun-dation or trust. Outlined below is a roadmap that we believewill be use ul or convening and executing this much-neededcollaborative e ort.

The commissions charge should center on prioritizingopportunities and actions to address inef ciencies in the in-terplay between the di erent authorities and roles o ederal,state, local and tribal governments in managing reshwaterresources. We believe this analysis would be most e ectivelyaccomplished by a multi-stakeholder commission comprisedo individuals rom all levels o government (including tribalgovernments), nongovernmental organizations, businesses,the agricultural sector, water and energy utilities, academia,tribes and communities that collectively represent all sectorsand the geographic diversity o the nation.

There are several speci c tasks that we recommend theproposed commission execute as part o its charge. First,we recommend that the commission develop an integratedcharacterization o the water quality and quantity challenges

acing the nation to create a plat orm or its examinationo U.S. reshwater governance. The characterization e ortshould include: identi cation o gaps in data and monitoringcapacity and recommendations or lling them; articulationo key challenges to supplying an adequate amount o resh-water or the multiple uses or which it is needed (energy and

ood production, ecosystem health, industry, municipal use,recreation, etc.); and overview o the current state o tech-

nology, in rastructure (structural and nonstructural), humanand nancial resource capacity available to implement andsustain workable solutions to key challenges.

With the a orementioned integrated characterization as aplat orm, we recommend that the commissions main pur-pose be to conduct an assessment o the current jurisdiction-al rameworks governing water quality and quantity man-agement across geographic scales o governance and makerecommendations about how to streamline intergovernmen-tal interactions. The commission should examine current ed-eral, state and local laws and regulations and other governingauthorities or water quality and quantity management toidenti y barriers to and opportunities or: greater ef ciencyand e ectiveness o water policy and management; reduc-ing stovepipes and eliminating con icts and redundancies;and creating new authority to address emerging reshwaterissues where necessary. Moreover, we recommend that this

reshwater resources commission make recommendationsor improving statutory authorities and establishing alterna-

tive dispute resolution mechanisms to resolve water-relateddisputes between stakeholders. A review o ederal lawsgoverning water quality and quantity management to assesswhether changes are needed to promote a risk-based ap-

proach to climate change adaptation and associated reshwa-ter management challenges is also needed. We acknowledgethat the commissions recommendations may include sug-gestions or legislative action by Congress. I that is the case,they should re ect a respect ul balance between the role o

ederal, state and local authorities and actors.

Recommendations


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We believe stronger linkages are needed between ederalprograms that provide important policy rameworks andguidance, and agencies and actors at diferent levels o

governance. Water is managed at the local level, so it is criti-cal that leaders and water users within watersheds have anactive role in decision making about and implementationo reshwater solutions. There ore, we recommend that thecommission identi y opportunities to manage national waterprograms to better support local, state, tribal and regionalprograms and rein orce the capacity to develop and imple-ment efective policies. We also see a need to integrate waterconsiderations into other closely related policy arenas such asenergy e ciency and job creation.

The last element o the proposed reshwater resourcescommissions charge that we recommend is the articulationo an inspired vision or achieving durable solutions thatper orm success ully at the watershed scale, to rame theoutcomes o the commissions work. We suggest that thevision be grounded by illustrative examples o cooperativeconservation and innovation rom diferent regions, statesand watersheds.

All Sectors Help Document IntegratedGovernance Approaches

We believe nongovernmental organizations (NGOs), aca-demic research institutions and private-sector leaders mustplay an active, ongoing role in orming policy makers, in paral-lel with eforts such as the proposed reshwater resourcescommission recommended above, about ways to streamlineand integrate reshwater governance without compromisingecological, economic or social outcomes. We recommendthat NGOs, academic researchers, business and agricultureleaders, and other parties contribute in ormation about suc-cess ul reshwater governance models rom diferent regionsand scales to a common online database that is accessible byall. These contributions should highlight approaches, modelsand success stories o streamlined and integrated regulationand en orcement, collaborative problem-solving, technologi-cal innovation, integrated policy and management solutions,and co-bene cial strategies and outcomes the hallmarks o

the new trajectory we see or reshwater management andresources in the United States. Cooperative Conservation

Americas website a public orum or collecting and sharingthe cooperative conservation stories, lessons, models andachievements o all Americans provides a possible model

or this efort. 27

State and Local Leaders Seek CollaborativeSolutions

State and local decision makers government and nongov-ernment play a key role in the implementation o reshwa-

ter management laws and regulations and are o ten in thebest position to integrate the interests o diferent stakehold-ers within a watershed. Since political boundaries typicallydo not align with watershed boundaries, we recommendthat state and local leaders seek and seize opportunities towork across jurisdictions to nd integrated and co-bene cialsolutions that meet urban, rural and ecosystem needs. Forexample, an initiative entitled the Ag/Urban/Enviro Water

Partnerships Drive Integrated

Watershed Planning The California Integrated Regional Water Manage-ment (IRWM) Planning process promotes integratedplanning within the watersheds of the state in a sys-tematic way to ensure sustainable water uses, reliablewater supplies, better water quality, environmentalstewardship, efficient urban development, protectionof agriculture and a strong economy. IRWM is accom-plished through partnerships of local water providers,county governments, flood control districts, NGOsand state agencies. State funding for the IRWM plan-ning and implementation of projects was authorizedby two state multi-billion-dollar voter-passed propo-sitions. This funding has resulted in IRWM plansfor most of the state and funding for projects suchas recycled water, ecosystem restoration, stormwaterbest management practices and desalination. 26


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Sharing Work Group, unded by the Walton Family Founda-tion, has brought together a group o urban, agricultural andenvironmental leaders to identi y innovative, balanced water

sharing strategies or the Colorado River Basin. 28 This projectand others like it may provide templates or cross-jurisdic-tional collaboration that could be applied to other Westernwatersheds. This type o approach will require many leadersto change rom a competitive mindset to a collaborative ap-

proach in which parties come together to seek co-benefcialoutcomes. The key to these types o e orts is the diversityand credibility o the participating stakeholders.

NGOs and Academia Coordinate to SupportCo-Benefcial Solutions

NGOs and institutions o higher learning can play a key rolein helping build relationships that bridge traditional dividesto create innovative water management solutions that alsoaddress national priorities, such as healthy communities and job creation. First, we recommend that NGOs and academicinstitutions evaluate how they are structured internally withrespect to addressing reshwater challenges, with the goal o breaking down disciplinary silos. We also encourage identi y-ing and establishing mechanisms or enhanced coordinationo research and policy development e orts, as well as inter-disciplinary collaboration among organizations and institu-tions to advance reshwater solutions. Lastly, we recognizethe important role the nongovernmental and academicsectors play in voicing support or the dedication o su -fcient human and fnancial resources to address reshwaterchallenges, and strongly encourage them to play that rolein helping to implement the recommendations contained inthis Call to Action .

Communities Share Co-Benefcial Solutions

Healthy reshwater ecosystems are an essential underpinningo community parks, open spaces and gathering places, andthe value they o er in this regard is best understood andprioritized at the local level. However, we must recognizethat mechanisms or the protection o local water resourceso ten originate at the ederal or state level. We recommend

that local communities draw on ederal and state guidanceand tools to plan or, manage and communicate about theirwater supply and quality needs, while designing strategies

to achieve co-benefcial outcomes that are adapted to theplace. We encourage community leaders to explore innova-tive, decentralized water quality and quantity solutions thatcan be implemented at the neighborhood, site and individualbuilding scale. Communities should also proactively seek and share existing models and tools that will help advance

co-benefcial solutions to locally specifc reshwater needsand challenges. In the uture, we envision that models andsuccess stories o integrated, co-benefcial solutions will beeasily accessible via the type o database recommended inthis Call to Action .

Local Knowledge Can InformInnovative Solutions

The firsthand experience of local people working onthe ground daily to address freshwater challenges of-fers a valuable resource that can be tapped for innova-tive solutions. Whether it is scientists and agriculturalleaders collaborating through the U.S. Fish & Wildlife

Services Partners for Fish and Wildlife Program inWyomings Little Snake River watershed to sustainwildlife and natural resource needs alongside com-patible agricultural uses and recreational opportuni-ties;29 or architects and builders working with publicofficials and private investors in New York City todesign and install on-site water re-use and stormwatertreatment technologies for a residential high-rise; 30 people with hands-on experience can offer valuableinsights and be helpful partners to policy makers inall sectors. Solutions to our freshwater challenges will

have a greater chance of success if they are rooted inlocal knowledge and American ingenuity.

Recommendations


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Enhance Effectivenessof Existing Regulatory Toolsfor Freshwater Management


During the late 1960s and early 1970s, when many o ourregulatory water quality rameworks were established, thehealth o many o our reshwater resources had reached crisislevels. The tools developed at that time efectively addressedmany o those acute challenges, and prescriptive standardswere developed predominately to address point-sources o pollution. In 2010, the emerging and increasingly complex

reshwater challenges we ace are pushing the boundaries

o the original rameworks. The lack o efective alternativesresults in existing regulatory tools being used in some casesto address reshwater problems to which they were notintended to be applied. The limitations o existing regulatory,en orcement and decision-making mechanisms o ten do notaford stakeholders an opportunity to seek constructive, co-bene cial solutions. Improving existing regulatory tools,

along with development o appropriate market-based andvoluntary approaches, promises to generate broader engage-ment across sectors in solution implementation. In short, weneed 21st century tools to address our 21st century reshwa-ter problems.

In parallel with the implementation o a commission toexplore ways to enhance coordination and streamlining o

reshwater governance, we recommend that the near-termsteps outlined below be taken to enhance the efectivenesso existing regulatory tools in addressing the reshwaterchallenges acing the nation. Participants in The Freshwater Summit may have diferent views on how to approach theopportunities outlined below, but we collectively recognizethem as ripe opportunities nonetheless.


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U.S. Environmental Protection AgencyMake Near-Term Improvements to KeyFreshwater Policies

We recommend that ederal agency leaders within the EPAidenti y near-term opportunities or improving implementa-tion o the Clean Water Act (CWA) and related policies, andbase proposed improvements on sound science and data.Building on the basic tenets o the CWA, the EPA shouldpromote and encourage the ormation o integrated water-shed-based management strategies and partnerships. We

recommend that the Agency seek opportunities to expandthe application o success ul cross-jurisdictional governancemodels (e.g., river basin commissions) that can be adapted todiferent authorities, create opportunities or local-level lead-ership and innovation, improve planning and monitoring,and establish inter-jurisdictional dispute resolution mecha-nisms. In light o current understanding about the importantlinkages between sur ace water, groundwater and drinkingwater sources, we also recommend that the EPA explore therelationship between the CWA and the Sa e Drinking WaterAct and identi y opportunities to achieve greater operationale ciency between these two critical reshwater laws.

We recommend that the EPA increase nancial and technicalassistance to states to build capacity or improving the efec-tiveness o CWA implementation at the state level. Assistanceshould include provision o necessary assistance to states to

acilitate understanding o numeric nutrient criteria or waterquality. The Agency should also identi y and disseminatebest practices or reducing nutrient loading and addressingemerging contaminants, while working to remove barriersto rapid and widespread adoption so that best practicesbecome common practice. In particular, collaborative andscience-based eforts to address nonpoint sources o these

pollutants should be emphasized. The EPA needs to alsocreate the right conditions or the testing and evaluation o new pollution control technologies and strategies in orderto accelerate innovation and reduce nancial, environmentaland other risks to investors and communities.

We also recommend that the EPA update CWA-related regula-tions that oversee stormwater ows by adopting recom-mendations provided by the National Research Council (NRC)

in their 2009 report, Urban Stormwater Management in theUnited States, that are consistent with this Call to Action .32 For example, the EPA could develop guidelines about howto design and calculate site-based impervious area eesto acilitate broader implementation o this cutting-edgeapproach, which is already driving innovative stormwatersolutions in cities like Philadelphia and Washington, DC. TheNRCs recommendations are particularly use ul because they

Task Force Creates CohesionAmong Stakeholders

The Great Lakes hold 84 percent of North Americassurface freshwater, according to the EPA. Within theUnited States, 11 federal agencies, eight U.S. states, 40tribal nations, several major metropolitan areas, andnumerous county and local governments togethergovern the Great Lakes. In 2004 President Bush cre-ated the Great Lakes Interagency Task Force to pro-

vide strategic direction on federal Great Lakes policy,priorities and programs. The EPA, the lead agency,works with state governors and mayors to facilitateregional collaboration. Goals include cleaner waterand sustainable fisheries. 31

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recognize the complexity involved in treating and regulatingstormwater due to the variable nature o fows and spatialdistribution o control points, as well as interrelated impacts

on water quality, biological integrity and habitat unction o receiving water bodies.

U.S. Department of Agriculture Seek Improvementsto the Next Farm Bill and Improve Implementationof the 2008 Conservation Title

As the EPA does with the CWA, the U.S. Department o Agri-culture (USDA) has opportunities to improve the e ective-ness o programs and policies under the Food, Conservation,

and Energy Act o 2008 (Farm Bill) in the near-term. We rec-ommend that the USDA make adjustments to its rulemaking

and implementation o the 2008 Farm Bill Conservation Titleprograms to increase their e ectiveness in catalyzing envi-ronmental stewardship and watershed-scale environmentaloutcomes, and recognize e orts these programshave taken in that direction.

We support the creation o the Mississippi River Basin Initia-tive (MRBI) and the movement to advance and incentivizewater monitoring as a tool or measuring per ormance and

in orming the planning process. We encourage creationo more such mechanisms that: target conservation undstoward impaired watersheds and are science-based; involve

diverse watershed stakeholders amiliar with local watershedconditions; and model interagency and cross-jurisdictionalcollaboration in support o locally led watershed initiatives.Furthermore, we encourage the creation o mechanisms that:incentivize suites o success ul nutrient reduction strategiesthrough cost-sharing; provide cost-share to armers andgroups or conducting water monitoring and other proce-dures to measure environmental per ormance o conserva-tion practices; and include targeting and environmentalper ormance measurement in grant-making criteria. Inaddition to targeting disbursement o conservation resourcestoward impaired watersheds, we recommend that the USDAlink stronger accountability mechanisms to conservation

unding. Initiatives such as the Conservation E ects Assess-ment Program should be continued and expanded to ensurethat practices and approaches supported by USDA undingachieve the environmental outcomes intended.

As the next Farm Bill is being developed, the USDA shouldwork with Congress to strengthen and improve its e ective-ness in addressing reshwater conservation, in line withrecommendations throughout this Call to Action . This shouldinclude expanded support or 2008 Farm Bill initiatives suchas the Agricultural Water Enhancement Program and theCooperative Conservation Partners Initiative that acilitatedsuch targeting, collaboration and monitoring e orts as theMRBI. Expanded support or the Conservation InnovationGrant program, which partners the USDA with leaders inacademia and business to develop, pilot and disseminate in-

novative solutions to conservation challenges, should includeincreased emphasis on reshwater quality and usage chal-lenges. Increased nancial and technical assistance shouldbe provided to help armers overcome prohibitive costs andother barriers that hinder the implementation o operationalchanges aimed at reshwater conservation. Additional undsshould also be directed toward capacity building at the

Source Water Protection Less Costly Over Long Term

Studies have shown that in the case of groundwa-ter, protecting source water from contamination ison average 30 to 40 (and up to 200) times cheaperthan dealing with the consequences of contaminatedgroundwater. 33 For example, when water supply inBurlington, North Carolina, became contaminatedwith the agricultural pesticide atrazine, the city choseto pursue source water protection rather than treat-ment. The pollution was traced to its source, and thecity provided farmers with subsidies to assist themin shifting to alternate pesticides and pest controlpractices. This cost the city around $30,000 total in labanalyses and subsidies to farmers, while treating foratrazine would have cost the city $108,000 annually. 34 35


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watershed scale, including development o local leaders incollaborative conservation, so that more local people areequipped to spearhead the ormation o multi-stakeholder

conservation eforts at the watershed scale, and strengthen-ing o coordinating in rastructure to acilitate watershedplanning, implementation and monitoring and evaluationneeded to achieve environmental per ormance.

White House Council on Environmental QualityComplete Update of Principles and Guidelinesfor Federal Water Resources Projects

We acknowledge the ongoing interagency efort, led by

the White House Council on Environmental Quality (CEQ)and O ce o Management and Budget, to modernize theEconomic and Environmental Principles and Guidelines orWater and Related Land Resources Implementation Studies(Principles and Guidelines). The current Principles and Guide-lines or ederal water resources projects were originallyestablished in 1983, and the time has come to update themso that environmental actors are considered as thoroughly

as economic actors.

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Promote Efficient,Environmentally Wise WaterManagement, Use and Delivery


The nations leaders should launch a ull-throttle efort toresearch, develop and demonstrate innovative and envi-ronmentally wise reshwater practices and technologies ore cient water use, alternative water supply sources andadvanced water treatment. Just as e ciency is being heavilytouted as a key tactic in the energy sector, e cient water useand delivery should be promoted as the rontline tactic orconserving and extending existing water supplies. We also

need to raise awareness about the inextricable link betweenwater and energy. Estimates vary, but somewhere between10 and 20 percent o our nations energy supplies go to thetreatment, movement and use o water. Conversely, vastamounts o reshwater are necessary or energy resource ex-traction and electricity generation. By integrating water and

energy management and policy, the nation can simultane-ously improve the e ciency o use o both critical resources.

A key concept that underlies e cient and environmentallywise water management is the right water or the right use.Potable water is currently dispersed or many uses in thiscountry that do not require it, such as certain industrial ap-plications, watering lawns and washing cars, to name a ew.Freshwater is a nite resource, and to meet growing demand,we need to develop policies that enable us to continue pro-viding sa e drinking water while also allowing and acilitating

the use o nonpotable water in situations where it is availableand sa e to use or the intended purpose. Moreover, we needto develop accepted methods or practices such as water ac-counting (e.g., water ootprinting) so that major water usersin diferent sectors are able to accurately track and minimizetheir impact on reshwater resources through smarter alloca-tions and other mitigation measures.


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Businesses Implement and Report on FreshwaterBest Practices

We recommend that the business sector take a variety o steps to help put the nation on a path to sustainable andresilient reshwater systems. First, businesses should under-stand and report on their water inputs, outputs and activi-ties, and seize opportunities to enhance mitigation o waterquality and quantity impacts (e.g., water accounting). We alsosuggest that companies enhance understanding o water useef ciency along supply chains to identi y opportunities andtake action to measurably improve ef ciencies. In addition,we recommend that businesses voluntarily share innovativeand success ul private-sector models or water conserva-

tion, ef ciency, re-use and stormwater management. We alsostrongly recommend that business leaders actively collabo-rate with government and other stakeholders to develop andpromote sustainable reshwater solutions.

Agricultural Producers Collaborate with OtherSectors to Enhance Freshwater Management

Farmers and ranchers own and operate a signi cant portiono the nations land and o ten hold senior water rights, which

means that they have a deeply vested interest in a depend-able and quality supply o reshwater. We recommend thatleaders rom government agencies and other sectors collabo-rate with agricultural producers to develop and implementon- arm water ef ciency and runo and drainage manage-ment improvements. As noted in examples in this report,improving their operational ef ciency with conservationpractices is an important actor agricultural producers cancontrol to increase their pro tability, which results in themhaving a wealth o practical knowledge about success ul on-

arm improvements. Key ways armers and ranchers can helptheir bottom line and maintain uture production opportuni-ties while improving watershed health include minimizingthe loss o nutrients and soil, improving energy ef ciency,optimizing yield and optimizing the e ectiveness o nutri-ent and pesticide application to reduce excess. I arrangedas cost-sharing partnerships, or through other creativeincentives, these cross-sector collaborations could also help

producers de ray the implementation costs o operationalchanges and create models that could be shared and scaledup across the nation.

Governments and Utilities Invest in Developmentand Implementation o Measures to IncreaseEf cient Water Use

We recommend that governments and utilities ramp upinvestment in research and development o new and emerg-ing practices and technologies that improve demand-sidewater ef ciency and reduce pollutant discharge. They shoulddevelop and promote pilot demonstration projects ocused

on monitoring and evaluating the e ectiveness o innovativewater ef ciency and re-use practices and technologies ac-cording to per ormance-based, triple-bottom-line criteria orsuccess. Examples o promising areas or investment includesmart water meters, high-ef ciency irrigation technologiesand techniques, water ef ciency programs, such as the EPAsWaterSense program, innovative distributed water supplyand treatment systems, and direct water re-use. Rigorous

per ormance-based evaluation o water ef ciency practicesand technologies will help decision makers determine whichare worthy or widespread deployment.

Farmers Work with Water Districtto Improve Efficiency

Since 1996, the Panoche Water and Drainage Districtin Californias Central Valley has facilitated imple-mentation of high-efficiency irrigation systems withinthe districts boundaries by making low-interestloans available to farmers for the purchase of gated

pipe, sprinkler, and drip irrigation systems. Partially funded through state grants and loans, the programhas helped farmers invest approximately $5 milliondollars in new irrigation systems, and 70 percent of the districts cropland is now irrigated with high-efficiency equipment. 36

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To acilitate widespread adoption o success ul water ef -ciency measures, we also recommend that government agen-cies and utilities develop incentives modeled a ter success ul

household energy ef ciency programs. Along with incen-tives to act, clearer messaging is needed to raise awarenessabout the inextricable relationship between water ef ciencyand energy ef ciency, which could help drive down waterdemand and there ore energy demand.

Governments and Utilities Increase Ef ciency o

Water Delivery and Implement EnvironmentallyWise Supply Enhancement Strategies

Demand or management improvements must be balancedwith supply enhancement strategies to help provide the rightmix o solutions or varying circumstances across the nation.Reused and recycled water are potentially e ective meanso expanding our supply and limiting the energy needed to

treat and transport water. We recommend that local govern-ments and utilities with authority over water supply man-agement take action to reduce policy and public perception

barriers to water recycling and re-use by educating the publicabout the purposes and sa ety o reused and recycled water.

With U.S. cities losing approximately 20 percent o theirwater to leaks and su ering 1.2 trillion gallons o wastewa-ter spills each year, we recommend that governments andutilities prioritize the rehabilitation o existing water storageand distribution acilities. 37 Rehabilitation measures should

ocus on maximizing delivery ef ciencies, upgrading oldpiping and distribution systems and re-regulating reservoirsto minimize operational waste. In cases where construc-tion o new supply in rastructure such as a dam is deemednecessary based on an alternatives analysis, care ul attentionmust be devoted to avoiding, minimizing and/or mitigatingecosystem or other impacts.

Along these lines, we recommend adopting ederal policythat supports the evaluation o new water supply enhance-ment projects in watersheds with inadequate storage capa-city. Development o such projects, along with opportunitiesto increase bene cial use and provide operational exibility,must be weighed against the ability to avoid, minimize andmitigate potential ecosystem impacts. We suggest that such apolicy ought to encourage state and local co-leadership withstakeholders in the area or the planning and implementa-tion o such projects, and call or the consideration o newand emerging supply enhancement strategies in the designphase. Additional groundwater supplies should be devel-oped with sensitivity to the sa e-yield and recharge param-eters o the particular aqui er, ecosystem impacts and energyrequired or pumping. Conjunctive management o sur aceand groundwater supplies should be encouraged, including

development o groundwater recharge projects that can beemployed to take advantage o times o high sur ace ow.

We also recommend that government agencies, utilities andother relevant actors develop pilot demonstration projects toevaluate the e ectiveness o emerging supply-side reshwa-ter practices and technologies. New and promising supply-side improvements include ecosystem restoration and engi-


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neered wetlands, enhanced food management, improvedtechnology to treat brine-impaired waters, stormwaterrecharge, direct and indirect water re-use and cutting-edge

drinking water treatment and disin ection systems. Pilot proj-ects will help decision makers determine which new supply-side approaches are worthy or broad-scale implementation.

All Sectors Help Develop a Skilled Workforce toSupport Water Management, Use and Delivery

The nation will need a skilled work orce to carry out the con-struction, operation and maintenance or more e cient andsustainable water management, use and delivery systems. We

recommend that leaders rom all sectors contribute to a com-prehensive assessment o long-term work orce needs and jobopportunity projections in the water industry. Based on theresults o that assessment, we must develop the resourcesto ll identi ed gaps in our work orce, including investmentin training programs that will help develop the skills neededto support emerging water management practices, such asgreen in rastructure, water re-use technology and other in-novative approaches.

Developing a work orce with these skills will help create jobs and bolster community economies by providing livablewages and promoting healthy neighborhoods. Furthermore,these investments will promote healthy alternatives oryoung people joining the work orce. For example, strength-ening and expanding the Civilian Conservation Corps andother vocational programs will create green-collar jobs oryouths. Collaboration between governmental and nongov-ernmental leaders in communities across the nation will becritical to anticipate training needs, advocate or trainingresources and encourage hiring provisions that will ensure adiverse high-quality work orce is available to help achieve thevision outlined in this Call to Action.

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The selection o appropriate reshwater management,conservation, ef ciency and water supply enhancementstrategies depends on good data. This is true in all sectors, yet

undamental data about our reshwater resources is incom-plete, inconsistent, unreliable and unavailable in real time orin ormed decision making. With todays remote sensing andsatellite technology, power ul computers and high-speedinternet connections, we should be able to collect even the

most dif cult-to-obtain data and share i t in real time. Thereare a number o poorly understood reshwater issues orwhich we require more research and better data so that wecan identi y e ective and durable solutions. These includethe availability and use o sur ace and groundwater, concen-tration and health implications o emerging contaminants

such as endocrine disruptors in our waters, climate change

impacts on reshwater systems, and outdoor water consump-tion and residential water use. In the meantime, we must con-tinue to act using the best-available science and adapt ourmanagement strategies as better in ormation becomes avail-able. Lack o unding or basic research and water monitoringis a key hurdle. We need to invest in reshwater research anddata collection that in orms decision makers at a level com-mensurate with the challenges we ace.

Federal Agencies and Congress Expand and SustainFreshwater Research and Data Collection

We recommend that ederal agencies, especially those withinthe U.S. Department o the Interior, expand existing nation-wide reshwater quality and quantity monitoring and data

Ensure FreshwaterDecision Making Is Basedon Sound Science and Data


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collection networks and outft them with cutting-edge tech-nology that enables rapid data analysis and real-time datasharing. The installation o additional stream gauges, water

meters, groundwater monitoring wells and better estimateso consumptive use are o paramount importance or the e -

ective management o available water supplies.

Congress should ensure adequate and sustained unding orull implementation o key activities mandated in the SECURE

Water Act o 2009, including the Water Availability and UseAssessment to be conducted as part o the U.S. Departmento Interior s WaterSMART Initiative and the National WaterCensus, as well as the U.S. Geological Surveys NationalStream ow In ormation Program and streamgaging network,and the creation o a National Groundwater Resources Moni-toring Program and Brackish Groundwater Assessment.

We recommend that all ederal programs that und water

projects or research establish per ormance measures thatrequire data-driven documentation o municipal, agricultural,environmental restoration and academic projects. Such per-

ormance measures will ensure reshwater data is collectedrom ederally unded projects and investment in enhanced

data is sustained over time. Lastly, we recommend that CEQexplore and identi y opportunities or the National Acad-emies to investigate and advance the nations understandingo particularly critical or vexing reshwater resource chal-lenges, such as the relationship between water and energyand potential co-benefcial solutions that will reduce demand

or and use o both.

NGOs and Academic Institutions Help DevelopFreshwater Monitoring and Data Collection Tools

We recommend that NGOs and academic research institu-tions research and develop metrics or measuring progresstoward sustainable and resilient reshwater resources thatencompass the triple-bottom-line indicators o ecosystemhealth, economic impact and social equity. NGOs and aca-demic institutions should also collaborate with governmentagencies to ensure reshwater monitoring and data collectionnetworks are unctioning properly and collecting use ul data.

In addition, they should collaborate with business leaders tohelp develop an accepted methodology or water accountingand contribute to the advancement o our understanding o the water/energy nexus.

Businesses Share Freshwater Data and InnovativeWater Management Practices

A clearer understanding o the water inputs and outputso di erent commercial and industrial activities will enablebetter water management decision making in all sectors. Werecommend that businesses and trade associations establishpolicies that encourage the voluntary sharing o data and in-

ormation about innovative reshwater use and managementpractices that increase the water e ciency or reduce overallwater demand or water quality impacts o business opera-tions. We also recommend that business leaders engage inand support e orts to develop accepted methodologies

or water accounting and reporting. In addition, we encour-age utilities and other water technology frms to advanceresearch and development o smart meter technology thattracks water use in real time and acilitates data collectionand sharing with consumers and decision makers.

Retail Coalition Funds Water

Quality Monitoring Agricultures Clean Water Alliance (ACWA) is amembership organization comprised of agriculturalretailers that apply a portion of their dues to waterquality monitoring on agricultural lands in Iowas DesMoines Lobe. Founded in 1999 to address nitratesin Iowas Raccoon River, ACWA has partnered withdownstream utility Des Moines Water Works, theIowa Soybean Association, and, more recently, theNature Conservancy in Iowa to conduct three-tierwater monitoring (138 sites) to understand the land/water interface and seek performing solutions. Since2004, ACWA has devoted more than $1 million towater quality data collection and a tile drainage de-nitrifying bioreactor demonstration project. 38

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The context-specifc nature o reshwater managementdecisions and shi ting hydrological patterns create chal-lenges that cut across sectors and industries. Watershedhydrology is extremely complex, and the dynamics withinevery watershed are di erent. In addition, many o the mostserious impacts o climate change will mani est as changesin the hydrologic cycle. As the e ects o climate change alter

amiliar patterns o evapotranspiration, rain all, snowmelt

and in-stream ows, trend projections and fxed water man-agement regimes based on the historical record will becomeincreasingly ine ective. To ensure sustainable and resilient

reshwater resources and systems or the uture, we mustimplement risk-based approaches that anticipate the rangeo potential change and employ exible and adaptive man-agement strategies that allow decision makers to integratenew knowledge and respond to disruptions or risks as theymaterialize over time.

Businesses Increase Resilience to Uncertainand Variable Freshwater Supplies

We recommend that businesses develop a better under-standing o the impact on their supply chains rom increas-ing vulnerability to extreme weather events and long-termchange in water supply. We also recommend that businessesclosely monitor reshwater inputs, outputs and activities (i.e.,water accounting) and establish mechanisms to allow orthe adjustment o operations to adapt to shi ting reshwaterresource conditions.

Agricultural Producers Implement AdaptiveManagement Strategies

Adaptive management at the arm and local watershed scaleis considered a key strategy or sustaining agricultural pro-duction and improving water quality. The deliberate and

Employ a Long-Range AdaptiveApproach to Freshwater ResourcesPlanning and Management


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iterative annual process o planning, implementing, evalu-ating and adjusting management strategies or crop andlivestock production is an important pathway to optimized

production and natural resource conservation in the agri-cultural sector. These strategies will become increasinglyimportant as the impacts o variable climate on the alreadycomplex and variable land/water inter ace are elt by agri-culture. For example, water demand or agriculture, primarilyirrigation, will increase in some regions due to higher temper-atures, prolonged dry periods and severe drought. There willbe less water stored in snowpack and more water in the ormo rain all in some regions, so runof will come at armers andranchers sooner in the season when it may not be use ul and

may even present a threat. Water demand or the hydrationo arm animals will also increase in areas with rising tem-peratures. To respond to existing complexities and the spatialand temporal variability o the land/water inter ace, and toprepare or added climatic variability and uncertain impacts,we recommend that armers and ranchers across the nationimplement an adaptive management approach in their op-erations, building on best practices and success stories romdiferent parts o the country.

Utilities Increase Resilience to Uncertainand Variable Freshwater Supplies

We recommend that water and energy utilities develop moreadaptive and conservative approaches to long-term plan-ning and reshwater management to account or increaseduncertainty and potential variability o water supplies overtime due to the efects o climate change. For example, waterutilities should consider maintaining natural ow regimes asan alternative or assisting ecosystem and species adaptationto climate change.

Furthermore, we recommend that utilities work with govern-ment planners and other stakeholders to ensure that utureenergy supplies are both low-carbon and low-water, particu-larly in regions o current and projected water stress. Newwater and energy in rastructure should be engineered so thatit is adaptable to climate change impacts while not inhibitingecosystem adaptability.

Government Agencies Adopt Adaptive FreshwaterManagement Policies that Promote Resilience

We recommend that ederal, state and local governmentwater management agencies review relevant policies andregulations to identi y whether changes can be made to al-low managers on the ground the exibility to adapt manage-ment actions to respond to changing hydrologic conditions.State and ederal water management agencies should alsoundertake water monitoring to detect emerging trends inwater quality, quantity and timing o ow regimes and hydro-periods to in orm rapid response and adaptation decisions atthe local level. In addition, agencies should actively develop

policies to reduce risks associated with more requent and ex-treme weather events, including drought management plans,plans or displacement and management o water qualityproblems due to ooding, and water allocation schemes thatare exible in the event o unexpected extremes.

Communities Increase Resilience to LocalHydrologic Changes

We recommend that local government o cials and com-

munity leaders develop a thorough understanding o thepotential efects o climate change on their watersheds, aswell as viable strategies or adapting local land use and waterresource planning to increase community resilience to sig-ni cant hydrologic changes. Planning areas that communityleaders should consider evaluating and adjusting in light o potential climate change impacts include oodplain delinea-tion, and securing and sustainably managing water supplies.

Decreasing Snowpack in The West

In western states, water managers have traditionally relied on snowpack in mountain ranges to meltthroughout the spring and summer and supply water.But a 2005 study showed that snow runoff in the Colo-rado River decreased 2 percent during the 20th cen-tury, and predicted a 10 percent reduction by 2050. 39

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Water Utilities Decouple Revenues fromVolume of Service

Water utilities servicing municipalities typically recoup fxedcosts based on volume o water sold. The more water sold,the greater the net revenue. As a result, there is an institu-tional disincentive or utilities to promote water conserva-tion. Decoupling water utility costs so that fxed costs are

ully recouped, but are not spread across a declining base o sales, would motivate utilities to proactively and aggressivelypromote water conservation and e ciency among theircustomers. Decoupling would allow utilities the exibility to

ully cover costs while also rewarding customers or conser-vation rather than raising rates to compensate or decreased

revenues resulting rom conservation. We recommend thatwater utilities work with municipalities, and their respec-tive public service commissioners and customers, to adaptexisting models or decoupling revenues to the water andwastewater sectors such that they can develop water pricingschemes that promote conservation. In the near term, whilemore sophisticated accounting and pricing mechanismsare under development, we recommend that water utilitiesconsider existing models or incentivizing advantageousconsumer behavior, such as seasonal block rates employedby cities such as Los Angeles, Seattle, Salt Lake City, Santa Feand San Antonio, where the price o water increases or eachunit used during dry months.

Public Agencies, Utilities and PrivateInvestors Collaborate to Expand InfrastructureInvestment Options

Action is needed to expand the range o investment optionsavailable to meet immediate and long-term in rastructure up-grades. We recommend a combination o conventional andmarket-based approaches in the near term to fll the gap in

available fnancing, with the goal o transitioning to predomi-nantly market-based approaches over the long term. Fullcost-o -service water pricing is a critical step to increase thefnancial capacity o utilities and municipalities to maintainand develop in rastructure, but additional options must bedeveloped in parallel or this e ort to be success ul.

First, we recommend repairing or upgrading existing in ra-structure where possible, to maximize re-use o resourcesand minimize new construction costs. When evaluating the

costs o repairs or upgrades, decision makers should assesswhether fxing existing in rastructure will reduce costs andincrease system e ciency over the long term. We recom-mend that urban and rural municipalities proactively seek to establish appropriate partnerships to create innova-tive fnancing alternatives or assessing and meeting theirin rastructure needs. Projects should be prioritized or capitalinvestment according to where water in rastructure is mostinadequate or presents the greatest threat to public health,or the potential or maximizing e ciency is the greatest, in-cluding in low-income communities where economic actors

limit the viability o conservation e orts. In addition, assess-ments o water storage and distribution in rastructure shouldbe conducted with an eye toward changes in the hydrologiccycle likely linked to climate change, particularly in the West.In cases where urban or rural water in rastructure systems arein need o major upgrades or completely new systems arenecessary to serve developing areas, structural and nonstruc-tural systems should be designed in a context-sensitive andenvironmentally responsible manner.

Partnership Employs Soft Path Strategies

The Christina Basin Clean Water Partnership isan alliance of federal, state, local and nonprofitwatershed organizations in Delaware and Pennsyl- vania. Since 1994 they have worked to restore thehistorically industrial, 565-square-mile watershedto potable, fishable and swimmable status. 42 43

Although it relies on voluntary action, the partner-ship has successfully implemented a variety of softpath strategies, including working with local farmsto reforest riparian zones along streams, restoringstormwater wetlands, and encouraging residents touse rain barrels and native plants in landscaping.In 2003 the partnership received a $1 million grantfrom the EPA, which ranked it first among the 176watershed groups considered. 44 45


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As we transition to market-based systems or fnancing theull cost o water services, we also have to consider the im-

mediate investment needed to address aging and inadequate

in rastructure systems. The existing gap in capital exceeds thecapacity o any single solution. State revolving und pro-grams, water banks and dedicated trusts have been exploredas exible fnancing options to help municipalities withlow-interest loans, extended loan terms, grants and other pro-grams to spread out or relieve the costs. The EPAs Clean WaterState Revolving Fund Program and Sa e Drinking Water StateRevolving Fund Program are two existing fnancing options

or municipalities. State revolving unds (SRFs) have a long-term track record o o ering loans with exible terms and at

low interest rates, as well as opportunities or partnershipswith other unders. Historically, SRFs have had extremely lowde ault rates and high impact on a project basis, but theirimpact on water quality nationally has not been optimizeddue to under unding and a lack o creativity. We recommendthat the implementation o the Clean Water and Sa e DrinkingWater SRFs be improved, the application process streamlinedand awards targeted toward projects that align with the prin-ciples and recommendations in this Call to Action .

Sustainable water in rastructure depends on more than justunding and well-engineered systems. Research in the Unit-

ed States has shown that e ective sta ng, consistent publicsupport or su cient unding, better asset managementsystems, per ormance measurements and rewards, and morestakeholder involvement and transparency are critical toe ective water in rastructure management. In cases whereincreased private involvement or changes in public opera-tions created signifcant cost savings, it is typically becausespecifc improvements were identifed and implemented inone or more o these areas. We recommend that municipali-ties strive to optimize triple-bottom-line outcomes by bal-

ancing investment in hard in rastructure with investment inthese important human capital aspects o sustainable waterin rastructure. Communities should establish partnershipswith academic, vocational, NGO and business programsto harness the ull beneft o the work orce opportunityrepresented by water in rastructure investments. This typeo strategy has the potential to generate socio-economicco-benefts by creating job opportunities in maintenance,operation and acility support or local workers, youth, andsmall and disadvantaged businesses.

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Municipal Governments and CommunityOrganizations Develop Freshwater-OrientedPublic Messaging

We strongly recommend that municipal governments andcommunity-based organizations develop place-based mes-saging that ocuses public attention on water ef ciency andconservation. To ensure sustainable and resilient reshwa-ter resources or uture generations o Americans, todaysconstituents must recognize the value o investing in sa e,reliable and ef cient water in rastructure or their commu-

nities whether they are urban or rural. They must see thepotential long-term bene ts o implementing innovative

reshwater management policies, such as basing stormwaterrates on impervious sur ace area. Most importantly, theymust understand how their own behavior impacts reshwaterresources and what they can do to minimize their personalwater ootprint. Local governments and community orga-nizations should draw rom case examples such as the LosAngeles River, where public education programs are in placeto introduce the public, including low-income communities,to the bene ts o conservation and sustainable reshwatermanagement practices.

National NGOs Launch a Widespread EducationCampaign about Freshwater Resources

We recommend that leaders in the NGO community initi-ate a national campaign to educate the public about wheretheir water comes rom, what the embedded delivery costsare and how they can protect and conserve this valuable re-source. We need to disseminate understandable in ormationabout the reshwater challenges we ace and help individualsunderstand how those challenges are connected to the day-to-day choices we make.

Investment in Drinking WaterSystems Lagging

Bottled water sales in the United States reached 8.82billion gallons in 2007, worth $11.7 billion, makingthe U.S. market for bottled water the largest in the

world.47

Over 20 years, Americans will likely spend$234 billion on bottled water. Also in 2007, EPAcalculated that we need to invest $334.8 billion over20 years in drinking water infrastructure. 48

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Ecosystem services are the tangible and intangible beneftsthat our rivers, streams, lakes and wetlands produce andprovide or human beings. These reshwater systems provide

ood, water delivery mechanisms, water purifcation, wastedisposal, carbon sequestration and recreation to name a ewsuch services. It is intuitively obvious that these services havevalue, and that their loss due to degradation and destructiono reshwater ecosystems represents a cost. The challenge

we ace is in understanding more ully the services thesereshwater ecosystems provide and how to assess the value

o those services. We also lack the institutional mechanismsto account or and internalize the ull costs o activities thatimpact reshwater ecosystems.

Leaders from All Sectors Collaborate to BuildUnderstanding and Tools to Support FreshwaterEcosystem Markets

We recommend that government, the private sector, NGOs,landowners and academics collaborate to create the toolsand methodologies needed to develop a better understand-ing o reshwater ecosystem valuation and, where appropri-ate, ecosystem services markets. This oundational knowl-edge will support the e ort to design e ective governancestructures to manage, monitor and provide decision supportsystems or institutionalizing the economic and social valueso reshwater ecosystem services. These systems should takeinto consideration the water supply, distribution and waterquality improvement values o ered by natural systems. They also should be designed to encourage multiple waterresources benefts (e.g., a single investment in riparian bu -

ers could support water quality, ground water recharge andhabitat protection). The market-based systems should not be

Develop and ValidateMethods for FreshwaterEcosystem Services Markets


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punitive nor penalizing. As we develop and refne methods tolocate, quanti y and assign value to the ecosystem benefts o

reshwater conservation actions, the prospect o establishing

payments and stable markets or water-related ecosystemservices will become ever more attainable.

While reshwater ecosystem services markets promise togenerate environmental benefts, the potential social andeconomic impacts must also be assessed. We recommendthat NGOs and academic research institutions evaluate thesocial and economic impacts o existing market-based natu-ral resource conservation approaches to determine how toensure that the environmental, social and economic impactso existing and emerging markets and payment schemes are

air and equitable, and that they include e ective con ictresolution and negotiation mechanisms. For these marketmechanisms to be success ul, they will require trusted gover-nance structures, which will also beneft rom a collaborativedesign approach.

USDA Facilitate the Development of FreshwaterEcosystem Services Markets

Section 2709 o the 2008 Farm Bill charges the USDA withacilitating the participation o armers, ranchers and orest

landowners in emerging environmental services markets, andcalls or the agency to develop metrics and market in rastruc-ture to incorporate these markets into ederal programs. TheFarm Bill also directs the agency to build on existing activitiesand in ormation, and consult with state and ederal agenciesand other relevant stakeholders to develop environmental orecosystem services markets. We support the USDAs e ortsto advance the development o ecosystem services marketsand encourage the agency to draw lessons rom existing andemerging market and payment schemes (e.g., water qualitytrading, carbon o set programs and species banking). Werecognize that market development e orts are underway inthe Chesapeake Bay, the Mississippi and Ohio River Basinsand a number Farm o the Future project sites. Furthermore,we recommend that the USDA review relevant ederal andstate legal and regulatory rameworks to ensure they support

air and e ective reshwater ecosystem service markets and

payments. The Department should work with landownersto clari y property, management and use rights or resh-water services and areas o land that may be managedto provide those services. We also suggest that the USDAcollaborate with experts rom other sectors to pilot bundledor layered ecosystem service markets to evaluate whetherthey can reduce transaction costs while achieving multipleservice benefts.

Assigning Value to Ecosystem Services

Healthy ecosystems perform multiple criticalservices for humans that have an economic value.These include providing drinkable water, breathableair, food, a stable climate, biodiversity to inspiremedications, physical buffers against storms andflooding and space for recreation and tourism. Eco-systems also recycle waste and pollinate food crops.

One way to understand how much an ecosystemservice is worth, is for economists to calculate howmuch it would cost to restore the natural system orto build a mechanical system to perform the sameservice. Worldwide, markets exist for carbon,biodiversity, wetlands and water quality.

Recommendations


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Commitments

to Action


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40Commitments to Action

As the issuers of this Charting New Waters: A Call to Action to

Address U.S. Freshwater Challenges, we consider it important to

demonstrate our own commitment to advancing the vision and

recommendations presented herein. At The Johnson Foundation

Freshwater Summit on June 9, 2010, each of us committed our

respective organizations to specific actions to lead the nation

toward a future of sustainable and resilient freshwater resources.

The full list of commitments that we have made is available as a

printed addendum to the Call to Action and can also be accessed

on the Web

charting new waters: a call to action to address u.s. freshwater challenges

Documents