Ecosystem Restoration in the Puget Sound

Updated December 17, 2015

Ecosystem Restoration in the Puget Sound

Introduction

The Puget Sound (the Sound), located in the state of

Washington, is the second-largest estuary in the United

States, covering 35,500 square kilometers, and the largest

estuary in the country by volume. It has been deemed an

Estuary of National Significance by the U.S. Environmental

Protection Agency (EPA) and is noted for its species

diversity, ecosystem services, and economic benefit to the

region. For example, activities associated with the Sound

are reported to contribute nearly half of the state’s gross

domestic product. The Puget Sound watershed also contains

67% of the state’s population and is home to 49 federally

listed threatened and endangered species.

Figure 1. Puget Sound Watershed

other broad but related authorities. In the 114th Congress,

H.R. 3630, the Promoting United Government Efforts to

Save Our Sound (or Puget SOS) Act, would authorize a

restoration program for the Sound.

Federal Restoration Efforts

Federal efforts to restore the Puget Sound are largely

conducted under the authority of broad environmental laws

such as the Clean Water Act. Several federal agencies

participate in efforts to restore the Sound, including the

EPA, U.S. Army Corps of Engineers (the Corps), U.S. Fish

and Wildlife Service, Natural Resources Conservation

Service, and National Oceanic and Atmospheric

Administration, among others. (See Table 1.)

EPA is considered by stakeholders to be the primary federal

agency responsible for conducting restoration activities in

the Sound. EPA funds activities that address priorities in the

state of Washington’s Action Agenda (see “State Efforts”

section, below) for restoring the Sound. The Corps is

working with the Washington Department of Fish and

Wildlife on the Puget Sound Nearshore Restoration Study,

which aims to evaluate problems and pose solutions related

to ecosystem degradation in the Sound.

Table 1. Selected Federal Puget Sound Restoration

Activities and Funding

($ in millions)

Agency

Source: Puget Sound Partnership.

Interest in restoring the Puget Sound stems from its status

as the second-largest estuary in the United States and from

the large amount of federally managed land in the Sound.

Approximately 44% of the land area within the Puget

Sound watershed is federally managed. Currently, there are

no stand-alone authorizations that holistically govern

restoration of the Sound, such as those in other areas (e.g.,

the Florida Everglades). Rather, restoration efforts largely

have been spearheaded by a state body, the Puget Sound

Partnership, with several federal agencies actively

conducting or participating in restoration projects under

FY2015

EPA

Puget Sound Program.

FWS

Conducts research on threatened and

endangered plants and wildlife and implements

projects to protect them.

9.2

Collects ecosystem data on the Puget Sound

and creates models, such as one that predicts

the effect of development on estuarine habitat.

3.9

Conducts programs to protect and restore

nearshore and floodplain habitats for fish,

marine mammals, and shellfish.

—

Implements the Puget Sound Nearshore

Restoration Study.

5.1

USGS

The Puget Sound ecosystem is being degraded by several

factors, including air and water pollution, shoreline

modification, habitat alteration, development, and climate

change. For example, nearly 14 million pounds of toxic

chemicals enter the Sound yearly through runoff and

atmospheric deposition.

Description

NOAA

Corps

$25.0

Source: EPA Budget documents and personal communication from

the Dept. of Interior, Corps, and NOAA.

Notes: EPA = U.S. Environmental Protection Agency; FWS = U.S.

Fish and Wildlife Service; USGS = U.S. Geological Survey; NOAA =

National Oceanic and Atmospheric Administration; Corps = U.S.

Army Corps of Engineers.

Coordination Among Federal Agencies

Absent the explicit authority for a federal entity to lead

restoration efforts in the Sound, a Puget Sound Federal

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Ecosystem Restoration in the Puget Sound

Caucus (Caucus), consisting of 15 federal agencies, was

created by a memorandum of understanding (MOU) in

2014. The Caucus’s stated objectives are to enhance federal

coordination for restoration activities, develop work plans

and strategies to coordinate efforts, and encourage federal

coordination with other nonfederal entities (such as the

Puget Sound Partnership; see “State Efforts” section,

below). The MOU is currently scheduled to sunset in 2017.

In 2011, a Puget Sound Regional Federal Agency Action

Plan was created to guide coordination of restoration

activities, but no subsequent versions of the plan have been

disseminated.

State Efforts

The state of Washington organizes restoration activities

largely through the Puget Sound Partnership (PSP), a state

agency that coordinates efforts of citizens, governmental

and nongovernmental organizations, tribes, and others. It

was created in 2007 to prioritize and sequence actions that

aim to achieve a set of restoration goals that range from

restoring and protecting habitat to improving marine and

freshwater quality. The PSP is also a National Estuary

Program (NEP), authorized 33 U.S.C. §1330. The PSP has

a Comprehensive Conservation Plan for the Puget Sound

authorized under the NEP and approved by the EPA.

This plan is termed the Action Agenda, and it lists ongoing

and new restoration activities aimed at achieving restoration

goals for the Puget Sound. The document also lists a set of

strategic initiatives that serve to prioritize certain near-term

restoration actions. Current strategic initiatives include

reducing pollutants from stormwater runoff; protecting and

restoring habitat; and recovering shellfish beds. The Action

Agenda is updated every two years and, according to the

PSP, is a result of the collaboration of state and federal

agencies, tribal governments, local governments, and other

stakeholders. The most recent Action Agenda (for 20142015) was published in May 2014.

Coordination Among State and Federal Efforts

There is no overarching coordinating entity that attempts to

integrate state and federal restoration activities.

Coordination between state and federal agencies occur

under various committees and teams. For example, EPA

coordinates with the PSP to meet requirements under NEP.

EPA activities are directed toward implementing the Action

Agenda. Further, the Ecosystem Coordination Board (under

the PSP) contains representatives from federal and state

agencies. The board provides recommendations to

implement the Action Agenda.

Potential Issues for Congress

In the 114th Congress, H.R. 3630 would address several key

issues related to restoration of the Puget Sound. The bill

raises several questions for Congress related to the Sound,

which are discussed below.

Coordination of Restoration Efforts

Among other things, federal legislation could direct

coordination efforts among federal agencies and between

federal and state agencies conducting restoration in the

Sound. For example, H.R. 3630 proposes to enhance the

Puget Sound Federal Caucus to coordinate recovery efforts

in the Sound and to develop a federal action plan for

restoration. Alternatively, a permanent coordinating entity

could be authorized in law to take the form of other

coordinating entities involved in large-scale ecosystem

restoration initiatives.

Congress also might consider the authorization of efforts to

ensure coordination among state and federal agencies. For

example, a comprehensive restoration plan for federal

agencies might also incorporate state actions and might

serve as a focal point for measuring the progress of

restoration efforts. However, some may oppose any effort

to create a new plan with the potential to duplicate and/or

compete with the Action Agenda. Under H.R. 3630,

coordination would occur through the guidance of a Puget

Sound Federal Task Force and a newly created EPA Puget

Sound restoration program office. The bill also would direct

federal restoration activities to be consistent with the Action

Agenda as much as possible under law.

Progress of Restoration Efforts

Since the PSP was initiated in 2007, several of the goals set

by the Action Agenda have not been met and progress

appears to be slow. In 2015, the PSP reported that 10 of 37

indicators are showing progress and that 15 indicators are

either not changing, have mixed results, or are getting

worse. Twelve indicators do not have enough data available

to make a determination. Little or no progress under some

indicators was attributed to a lag in getting results from the

time restoration activities were completed.

Whether an overall lack of restoration progress could be

improved through additional federal involvement (and, if

so, to what extent) is another potential question for

Congress. Aside from governance and coordination under

existing authorities, some contend that enhanced

monitoring and reporting would improve understanding of

the ecosystem. (There is no coordinated monitoring for

federal efforts in the Sound.) H.R. 3630 would address this

issue by, among other things, authorizing the director of the

Puget Sound program office to procure research and

monitoring to fulfill the “objectives and priorities of the

action plan.”

Ocean Acidification and Climate Change

Ocean acidification and climate change are two long-term

factors that could affect Puget Sound restoration. The

Action Agenda parallels the state climate change response

strategy to address climate change issues. Federal actions

might consider climate change and ocean acidification on a

project-by-project basis or holistically over all activities.

H.R. 3630 would direct federal agencies to consider actions

that would promote resilience to climate change and ocean

acidification effects, but the bill does not provide further

direction on this issue.

Pervaze A. Sheikh, Specialist in Natural Resources Policy

Charles V. Stern, Specialist in Natural Resources Policy

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Ecosystem Restoration in the Puget Sound

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