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Drought in the United States: Causes and Issues for Congress
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Drought is a natural hazard with often significant societal, economic, and environmental consequences. Public policy issues related to drought range from how to identify and measure drought to how best to prepare for, mitigate, and respond to drought impacts, and who should bear associated costs. Severe drought in 2011 and 2012 fueled congressional interest in near-term issues, such as current (and recently expired) federal programs and their funding, and long-term issues, such as drought forecasting and various federal drought relief and mitigation actions. Continuing drought conditions throughout the country contribute to ongoing interest in federal drought policies and responses.
As of April 2013, drought has persisted across approximately two-thirds of the United States and is threatening agricultural production and other sectors. More than 1,180 counties so far have been designated as disaster areas for the 2013 crop season, including 286 counties contiguous to primary drought counties. In comparison, in August 2012, more than 1,400 counties in 33 states had been designated as disaster counties by the U.S. Secretary of Agriculture. Most attention in the 112th Congress focused on the extension of expired disaster assistance programs in separate versions of a 2012 farm bill. Attention in the 113th Congress again is expected to focus on farm bill legislation; however, other bills addressing different aspects of drought policy and response have also been introduced. (For information regarding drought disaster assistance for agricultural producers, see CRS Report RS21212, Agricultural Disaster Assistance. For information on the 2012 bill, see CRS Report R42552, The 2012 Farm Bill: A Comparison of Senate-Passed S. 3240 and the House Agriculture Committee’s H.R. 6083 with Current Law.)
Although agricultural losses typically dominate drought impacts, federal drought activities are not limited to agriculture. For example, the 2012 drought raised congressional interest in whether and to what extent other federal agencies have and are using authorities to address drought. Similarly, the President in August 2012 convened the White House Rural Council to assess executive branch agencies’ responses to the ongoing drought. The Administration shortly thereafter announced several new administrative actions to address the drought.
While numerous federal programs address different aspects of drought, no comprehensive national drought policy exists. A 2000 National Drought Policy Commission noted the patchwork nature of drought programs, and that despite a major federal role in responding to drought, no single federal agency leads or coordinates drought programs—instead, the federal role is more of “crisis management.” Congress may opt to revisit the commission’s recommendations. Congress also may consider proposals to manage drought impacts, such as authorizing new assistance to develop or augment water supplies for localities, industries, and agriculture—or providing funding for such activities where authorities already exist. Congress also may address how the two major federal water management agencies, the U.S. Army Corps of Engineers and the Bureau of Reclamation, plan for and respond to drought.
This report describes the physical causes of drought, drought history in the United States, and policy challenges related to drought. It also provides examples of recurrent regional drought conditions. For information on federal agricultural disaster assistance and related legislation, see the CRS reports noted above.
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Effects of Management on Carbon Sequestration in Forest Biomass in Southeast Alaska
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The Tongass National Forest (Tongass) is the largest national forest and largest area of old-growth forest in the United States. Spatial geographic informa- tion system data for the Tongass were combined with forest inventory data to estimate and map total carbon stock in the Tongass; the result was 2.8±0.5PgC,or8%of the total carbon in the forests of the conterminous USA and 0.25% of the carbon in global forest vegetation and soils. Cumulative net carbon loss from the Tongass due to management of the forest for the period 1900–95 was estimated at 6.4–17.2 Tg C. Using our spatially explicit data for carbon stock and net flux, we modeled the potential effect of five management regimes on future net carbon flux. Estimates of net carbon flux were sensitive to projections of the rate of carbon accumulation in second-growth forests and to the amount of carbon left in standing biomass after harvest. Projections of net carbon flux in the Tongass range from 0.33 Tg C annual sequestration to 2.3 Tg C annual emission for the period 1995–2095. For the period 1995–2195, net flux estimates range from 0.19 Tg C annual sequestra- tion to 1.6 Tg C annual emission. If all timber harvesting in the Tongass were halted from 1995 to 2095, the economic value of the net carbon sequestered during the 100-year hiatus, assuming $20/Mg C, would be $4 to $7 million/y (1995 US dollars). If a prohibition on logging were extended to 2195, the annual economic value of the carbon sequestered would be largely unaffected ($3 to $6 million/y). The potential annual economic value of carbon sequestration with management maxi- mizing carbon storage in the Tongass is comparable to revenue from annual timber sales historically authorized for the forest.
Key words: carbon sequestration; geographic information system; climate change; forest management; Alaska.
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COMMENTARY: Overshoot, adapt and recover
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We will probably overshoot our current climate targets, so policies of adaptation and recovery need much more attention, say Martin Parry, Jason Lowe and Clair Hanson. FROM THE TEXT: “We should be planning to adapt
to at least 4°C of warming.”
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Assessing the impacts of livestock production on biodiversity in rangeland ecosystems
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Biodiversity in rangelands is decreasing, due to intense utilization for livestock production and conversion of rangeland into cropland; yet the outlook of rangeland biodiversity has not been considered in view of future global demand for food. Here we assess the impact of future livestock production on the global rangelands area and their biodiversity. First we formalized exist- ing knowledge about livestock grazing impacts on biodiversity, expressed in mean species abundance (MSA) of the original rangeland native species assemblages, through metaanalysis of peer-reviewed literature. MSA values, ranging from 1 in natural rangelands to 0.3 in man-made grasslands, were entered in the IMAGE-GLOBIO model. This model was used to assess the impact of change in food demand and livestock production on future rangeland biodiversity. The model revealed remarkable regional variation in impact on rangeland area and MSA between two agricultural production scenarios. The area of used rangelands slightly increases globally between 2000 and 2050 in the baseline scenario and reduces under a scenario of enhanced uptake of resource-efficient production technologies increasing production [high levels of agricultural knowledge, science, and technology (high-AKST)], particularly in Africa. Both scenarios suggest a global decrease in MSA for rangelands until 2050. The contribution of livestock grazing to MSA loss is, however, expected to diminish after 2030, in particular in Africa under the high-AKST scenario. Policies fostering agricultural intensification can reduce the overall pressure on rangeland biodiversity, but additional measures, addressing factors such as climate change and infrastructural development, are necessary to totally halt biodiversity loss.
dose-response model | intactness | land use
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Barking up the Wrong Tree? Forest Sustainability in the wake of Emerging Bioenergy Policies
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The spotted owl controversy revealed that federal forest management policies alone could not guarantee functioning forest ecosystems. At the same time as the owl’s listing, agreements made at the 1992 Rio Earth Summit highlighted the mounting pressures on natural systems, thus unofficially marking the advent of sustainable forestry management (SFM).2 While threats to forest ecosystems from traditional logging practices certainly remain,3 developed and developing countries have shifted generally toward more sustainable forest management, at least on paper, including codifying various sustainability indicators in public laws.4 Nevertheless, dark policy clouds are gathering on the forest management horizon. Scientific consensus has grown in recent years around a new and arguably more onerous threat to all of the world’s ecosystems—climate change. Governments’ responses have focused on bioenergy policies aimed
at curtailing anthropogenic greenhouse gas (GHG) emissions, and mandatesfor renewables in energy supplies now abound worldwide.
[Vol. 37:000
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Carbon sequestration in the U.S. forest sector from 1990 to 2010
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From 1990 through 2005, the forest sector (including forests and wood products) sequestered an average 162 Tg C year1 . In 2005, 49% of the total forest sector sequestration was in live and dead trees, 27% was
in wood products in landfills, with the remainder in down dead wood, wood products in use, and forest floor and soil. The pools with the largest carbon stocks were not the same as those with the largest sequestration rates, except for the tree pool. For example, landfilled wood products comprise only 3% of total stocks but account for 27% of carbon sequestration. Conversely, forest soils comprise 48% of total stocks but account for only 2% of carbon sequestration. For the tree pool, the spatial pattern of carbon stocks was dissimilar to that of carbon flux. On an area basis, tree carbon stocks were highest in the Pacific Northwest, while changes were generally greatest in the upper Midwest and the Northeast. Net carbon sequestration in the forest sector in 2005 offset 10% of U.S. CO2 emissions. In the near future, we project that U.S. forests will continue to sequester carbon at a rate similar to that in recent years. Based on a comparison of our estimates to a compilation of land-based estimates of non-forest carbon sinks from the literature, we estimate that the conterminous U.S. annually sequesters 149–330 Tg C year1. Forests, urban trees, and wood products are responsible for 65–91% of this sink.
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Effect of Risk Aversion on Prioritizing Conservation Projects
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Agencies making decisions about what threat mitigation actions to take to save which species frequently face the dilemma of whether to invest in actions with high probability of success and guaranteed benefits or to choose projects with a greater risk of failure that might provide higher benefits if they succeed. The answer to this dilemma lies in the decision maker’s aversion to risk—their unwillingness to accept uncertain outcomes. Little guidance exists on how risk preferences affect conservation investment priorities. Using a prioritization approach based on cost effectiveness, we compared 2 approaches: a conservative probability threshold approach that excludes investment in projects with a risk of management failure greater than a fixed level, and a variance-discounting heuristic used in economics that explicitly accounts for risk tolerance and the probabilities of management success and failure. We applied both approaches to prioritizing projects for 700 of New Zealand’s threatened species across 8303 management actions. Both decision makers’ risk tolerance and our choice of approach to dealing with risk preferences drove the prioritization solution (i.e., the species selected for management). Use of a probability threshold minimized uncertainty, but more expensive projects were selected than with variance discounting, which maximized expected benefits by selecting the management of species with higher extinction risk and higher conservation value. Explicitly incorporating risk preferences within the decision making process reduced the number of species expected to be safe from extinction because lower risk tolerance resulted in more species being excluded from management, but the approach allowed decision makers to choose a level of acceptable risk that fit with their ability to accommodate failure. We argue for transparency in risk tolerance and recommend that decision makers accept risk in an adaptive management framework to maximize benefits and avoid potential extinctions due to inefficient allocation of limited resources.
Keywords: conservation decisionmaking,cost-effectiveness analysis, management effectiveness,Project Prioritization Protocol, risk analysis, risk tolerance, threatened species, uncertainty
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Adapting to a Changing Climate in the Southeast
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Whether it’s change to native terrestrial habitats or sea level rise and impacts to vital coastal wetlands and marshes, we are only beginning to understand what is happening across the country, what is likely to occur in the years ahead, and how our agency will act. Indeed, of the 128 national wildlife refuges in the Southeast more than half are located along the coast. The number of days per year with peak temperatures over 90F is expected to rise significantly. By the end of this century, projections indicate much of North Carolina will have 90F plus days for one-third of the year, up from less than 30 days in that temperature zone in the 1960s and 1970s. Arkansas will see 90F days for up to 150 days a year, and NorthFlorida for nearly 6 months a year.
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Are conservation organizations configured for effective adaptation to global change?
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Conservation organizations must adapt to respond to the ecological impacts of global change. Numerous
changes to conservation actions (eg facilitated ecological transitions, managed relocations, or increased corridordevelopment) have been recommended, but some institutional restructuring within organizations may also be needed. Here we discuss the capacity of conservation organizations to adapt to changing environmental
conditions, focusing primarily on public agencies and nonprofits active in land protection and management
in the US. After first reviewing how these organizations anticipate and detect impacts affecting target
species and ecosystems, we then discuss whether they are sufficiently flexible to prepare and respond by reallocating funding, staff, or other resources. We raise new hypotheses about how the configuration of different
organizations enables them to protect particular conservation targets and manage for particular biophysical
changes that require coordinated management actions over different spatial and temporal scales. Finally, we
provide a discussion resource to help conservation organizations assess their capacity to adapt.
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Ecosystem carbon stocks and sequestration potential of federal lands across the conterminous United States
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Federal lands across the conterminous United States (CONUS) account for 23.5% of the CONUS terrestrial area but have received no systematic studies on their ecosystem carbon (C) dynamics and contribution to the national C budgets. The methodology for US Congress-mandated national biological C sequestration potential assessment was used to evaluate ecosystem C dynamics in CONUS federal lands at present and in the future under three Intergovernmental Panel on Climate Change Special Report on Emission Scenarios (IPCC SRES) A1B, A2, and B1. The total ecosystem C stock was estimated as 11,613 Tg C in 2005 and projected to be 13,965 Tg C in 2050, an average increase of 19.4% from the baseline. The projected annual C sequestration rate (in kilograms of carbon per hectare per year) from 2006 to 2050 would be sinks of 620 and 228 for forests and grasslands, respectively, and C sources of 13 for shrublands. The federal lands’ contribution to the national ecosystem C budget could decrease from 23.3% in 2005 to 20.8% in 2050. The C sequestration potential in the future depends not only on the footprint of individual ecosystems but also on each federal agency’s land use and management. The results presented here update our current knowledge about the baseline ecosystem C stock and sequestration potential of federal lands, which would be useful for federal agencies to decide management practices to achieve the national greenhouse gas (GHG) mitigation goal.
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