The comprehensive everglades restoration plan: Environmental or economic sustainability?

Polity

Volumn 37, Issue 4, 2005, Pages 466-490

  Gonzalez, George A ^a  

^a UNIVERSITY OF MIAMI   (United States)

Author keywords

Everglades; Florida; United States; Water management

Indexed keywords

EID: 27144512954     PISSN: 00323497     EISSN: None     Source Type: Journal    
DOI: 10.1057/palgrave.polity.2300021     Document Type: Review

References (174)

1. Donald Worster, Rivers of Empire: Water, Aridity & the Growth of the American West (New York: Pantheon, 1985);
2. and A River Running West: The Life of John Wesley Powell (New York: Oxford University Press, 2001);
3. also see Terry L. Anderson and Peter J. Hill, eds. The Political Economy of the American West (Lanham, MD: Rowman & Littlefield, 1994).
4. Robert Gottlieb, A Life of Its Own: The Politics and Power of Water (New York: Harcourt Brace, 1988);
5. also see Gerard Koeppel, Water for Gotham: A History (Princeton, NJ: Princeton University Press, 2000);
6. Martin V Melosi, The Sanitary City: Urban Infrastructure in America from Colonial Times to the Present (Baltimore: Johns Hopkins University Press, 2000);
7. Robert Glennon, Water fbllies: Groundwater Pumping and the Fate of America's Fresh Waters (Washington, DC: Island, 2002);
8. and Douglas E. Kupel, Fuel for Growth: Water and Arizona's Urban Environment (Tucson: University of Arizona Press, 2003).
9. Abraman Hoffman, Vision or Villainy: Origins of the Owens Valley-Los Angeles Water Controversy (College Station: Texas A&M University Press, 1981);
10. Norris Hundley, Jr., The Great Thirst: Californians and Water, 1770s-1990s (Berkeley: University of California Press, 1992);
11. John Walton, Western Times and Water Wars: State, Culture, and Rebellion in California (Berkeley: University of California Press, 1993);
12. Marc Reisner, Cadillac Desert: The American West and Its Disappearing Water (New York: Penguin, 1993).
13. Nelson Manfred Blake, Land into Water-Water into Land: A History of Water Management in Florida (Tallahassee: University Presses of Florida, 1980);
14. David McCally The Everglades: An Environmental History (Gainesville: University Press of Florida, 1999).
15. U.S. Army Corps of Engineers, Jacksonville District, Central and Southern Florida Project: Comprehensive Review Study, vols. 1-10 (Jacksonville, FL: U.S. Army Corps of Engineers, 1999).
16. Luther J. Carter, The Florida Experience: Land and Water Policy in a Growth State (Baltimore: Johns Hopkins University Press, 1974);
17. Arva Moore Parks and Gregory W Bush, with Laura Pincus, Miami, the American Crossroad: A Centennial Journey, 1896-1996 (Boston: Pearson, 1997);
18. Gregory Bush, "Playground of the USA: Miami and the Promotion of Spectacle," Pacific Historical Review 68 (1999): 153-73;
19. Charles W Tebeau and William Marina, A History of Florida, 3rd ed. (Miami: University of Miami Press, 1999);
20. Gary R. Mormino, Land of Sunshine, State of Dreams: A Social History of Modern Florida (Gainesville: University Press of Florida, 2005).
21. Lance deHaven-Smith, Environmental Concern in Florida and the Nation (Gainesville: University of Florida Press, 1991);
22. Neil Carter, The Politics of the Environment: Ideas, Activism, Policy (Cambridge: Cambridge University Press, 2001);
23. Lynn Deborah Guber, The Grassroots of a Green Revolution: Polling America on the Environment (Cambridge, MA: MIT Press, 2003).
24. Tim Büthe, "Taking Temporality Seriously: Modeling History and the Use of Narratives as Evidence," American Political Science Review 96 (2002): 481-93.
25. Ralph Miliband, The State in Capitalist Society (New York: Basic Books, 1969);
26. Clyde W Barrow, Critical Theories of the State (Madison: Wisconsin University Press, 1993), chap. 1;
27. George A. Gonzalez, "Ideas and State Capacity, or Business Dominance? A Historical Analysis of Grazing on the Public Grasslands," Studies in American Political Development 15 (2001): 234-44;
28. G. William Domhoff, Who Rules America? Power and Politics, 4th ed. (New York: McGraw-Hill, 2002).
29. Michael Useem, The Inner Circle: Large Corporations and the Rise of Business Political Activity In the U.S. and U.K. (Oxford: Oxford University Press, 1984);
30. Barrow, Critical Theories of the State, chap. 1; and Domhoff, Who Rules America?.
31. Barrow, Critical Theories of the State, 17.
32. Barrow, Critical Theories of the State, 16.
33. James W Lamare, California Politics: Economics, Power, and Policy (New York: West, 1993);
34. and Texas Politics: Economics, Power, and Policy, 7th ed. (Belmont, CA: Wadsworth, 2000);
35. George A. Gonzalez, "The Conservation Policy Network, 1890-1910: The Development and Implementation of 'Practical' Forestry," Polity 31 (1998): 269-99;
36. and Corporate Power and the Environment: The Political Economy of U.S. Environmental Policy (Lanham, MD: Rowman & Littlefield, 2001).
37. Mancur Olson, The Logic of Collective Action: Public Goods and the Theory of Groups (Cambridge, MA: Harvard University Press, 1971);
38. Charles Lindblom, Politics and Markets: the World's Political-Economic Systems (New York: Basic, 1977);
39. Barrow, Critical Theories of the State, chap. 1.
40. Domhoff, Who Rules America?
41. Olson, The Logic of Collective Action.
42. This is not to suggest that producer groups and economic elites always have the same economic and political interests. Thus, in some instances they disagree over policy issues. G. William Domhoff, The Powers that Be (New York: Random House, 1978);
43. for an example see Gonzalez, Corporate Power and the Environment, 69-77. Hence, it is necessary to analytically draw a distinction between these sets of actors.
44. Andrew S. McFarland, Neopluralism; The Evolution of Political Process Theory (Lawrence: University Press of Kansas, 2004).
45. Also see Manley's "pluralism 11" notion. John E Manley, "Neo-Pluralism: a Class Analysis of Pluralism I and Pluralism II," American Political Science Review 77 (1983): 368-83.
46. Worster, Rivers of Empire.
47. Worster, Rivers of Empire, 64.
48. Blake, Land into Water-Water into Land, 15.
49. "Florida's Rich Rivals: Millionaires Flagler and Plant and Their Great Undertaking," New York Times (18 March 1896): 6.
50. Blake, Land into Water-Water into Land, chap. 2.
51. Blake, Land into Water-Water into Land, 36.
52. Blake, Land into Water-Water into Land, 73.
53. Worster, Rivers of Empire.
54. Jeffrey Glenn Strickland, "The Origins of Everglades Drainage in the Progressive Era" (Master's thesis, Florida Atlantic University, 1999).
55. In January 1881, Disston signed a contract with the state entitling his firm, the Okeechobee Land Company, to half of the land it could drain. In May of that same year the Governor negotiated a contract with Disston selling him four million acres of land in South Florida at 25 cents an acre, with the expectation that Disston would undertake an effort to drain much of the area's marshland.
56. Blake, Land into Water-Water into Land, 83.
57. Blake, Land into Water-Water into Land, chap. 4.
58. Donald J. Pisani, Water and American Government: The Reclamation Bureau, National Water Policy, and the West, 1902-1935 (Berkeley: University of California Press, 2002).
59. Samuel P Hays, Conservation and the Gospel of Efficiency: The Progressive Conservation Movement, 1890-1920 (Cambridge, MA: Harvard University Press, 1959);
60. James Weinstein, The Corporate Ideal in the Liberal State: 1900-1918 (Boston: Beacon, 1968);
61. Gabriel Kolko.The Triumph of Conservatism: A Reinterpretation of American History 1900-1916 (New York: Free Press, 1977 [1963]);
62. Gonzalez, Corporate Power and the Environment, chaps. 2 and 3;
63. R. Rudy Higgins-Evenson, The Price of Progress: Public Services, Taxation, and the American Corporate State, 1877 to 1929 (Baltimore: Johns Hopkins University Press, 2003).
64. Edward N. Akin, Flagler: Rockefeller Partner and Florida Baron (Kent, OH: Kent State University Press), 140.
65. "Florida's Rich Rivals."
66. Blake, Land into Water-Water into Land, 91.
67. Blake, Land into Water-Water into Land, 110.
68. Akin, Flagler, 141.
69. Akin, Flagler, 144.
70. Blake, Land into Water-Water into Land, 94.
71. Samuel Proctor, Napoleon Bonaparte Broward: Florida's Fighting Democrat (Gainesville: University Press of Florida, 1993 [1950]), chap. 15.
72. As quoted in Proctor, Napoleon Bonaparte Broward, 242.
73. Proctor, Napoleon Bonaparte Broward, chap. 15.
74. McCally, The Everglades, 93.
75. Blake, Land into Water-Water into Land, 104-105 and 107.
76. Blake, Land into Water-Water into Land, 131-134;
77. McCally, The Everglades, chap. 5.
78. Raymond B. Vickers, Panic in Paradise: Florida's Banking Crash of 1926 (Tuscaloosa: University of Alabama Press, 1994).
79. Barrow, Critical Theories of the State, chap. 1;
80. Domhoff, Who Rules America?.
81. Soil Science Society of Florida, Proceedings Volume 1, 1939: First Annual Meeting of the Society (Hollywood, FL: Soil Science Society of Florida, 1939), 9 and 75.
82. Soil Science Society of Florida, Proceedings Volume 1, 71-76.
83. Soil Science Society of Florida, Proceedings Volume 1, 4.
84. Soil Science Society of Florida, Proceedings Volume IV-A, 1942: Interim Meeting of the Society: Reclamation and Soil Conservation Problems of Florida Everglades (West Palm Beach, FL: Soil Science Society of Florida, 1942), 2.
85. Soil Science Society of Florida, Proceedings Volume 1, 7.
86. Soil Science Society of Florida, Proceedings Volume 1, 61-70.
87. McCally, The Everglades, 147.
88. McCally, The Everglades, 148.
89. Soil Science Society of Florida, Proceedings Volume IV-A, 131, emphasis added.
90. McCally, The Everglades, 148.
91. Soil Science Society of Florida, Proceedings Volume VIII, 1946: Annual Meeting of the Society (West Palm Beach and Belle Glade, FL: Soil Science Society of Florida 1946), 94.
92. Alec Wilkinson, Big Sugar: Seasons in the Cane Fields of Florida (New York: Knopf, 1989);
93. McCally, The Everglades, chap. 7;
94. Max Kirsch, "The Politics of Exclusion: Place and the Legislation of the Environment in the Florida Everglades," Urban Anthropology & Studies of Cultural Systems & World Economic Development 32 (2003): 99-132.
95. Blake, Land into Water-Water into Land;
96. McCally, The Everglades.
97. Michael Grunwald, "When in Doubt, Blame Big Sugar,"Washington Post (25 June 2002): A9.
98. Michael Grunwald, "A Rescue Plan, Bold and Uncertain," Washington Post (23 June 2002): Al.
99. Blake, Land into Water-Water into Land;
100. McCally, The Everglades.
101. Robert P King, "Restoration Means Shattering of Dreams for Some," Palm Beach Post (24 February 2003): 1A.
102. The CERP project is currently in the process of acquiring the lands that are to augment the existing conservation areas. This is to serve as the first stage of the project. The full implementation of CERP is expected to take a number of years. Jay Landers, "Florida Accelerates Its Plans for Restoring the Everglades," Civil Engineering (December 2004): 16-18.
103. John R. Logan and Harvey L. Molotch, Urban Fortunes: The Political Economy of Place (Berkeley: University of California Press, 1987);
104. Andrew E.G. Jonas and David Wilson, eds., The Urban Growth Machine: Critical Perspectives Two Decades Later (Albany: State University of New York Press, 1999);
105. George A. Gonzalez, "Urban Growth and the Politics of Air Pollution: The Establishment of California's Automobile Emission Standards," Polity 35 (2003): 213-36;
106. and The Politics of Air Pollution: Urban Growth, Ecological Modernization, and Symbolic Inclusion (Albany: State University New York, 2005);
107. Juliet Galnsborough, "Business Organizations as Regional Actors: The Politics of Regional Cooperation in Metropolitan America," Polity 35 (2003): 555-72.
108. Roy Rodgers, member of the Governor's Commission for a Sustainable South Florida, interview by author, tape recording, Pompano Beach, FL (7 July 2003). A substantial portion of the data for this paper is composed of interviews with individuals who were either directly involved with formulation of CERP or strongly interested in it. I determined who I would interview through two means. One, I sought to interview individuals within government who took leading roles in the formation of CERP Examples of this group of interviewees include: Mary Doyle (former Assistant Secretary of the Department of Interior), Richard Pettigrew (Chairperson of the Governor's Commission for a Sustainable South Florida), Roy Rodgers (Member of Governor's Commission for a Sustainable South Florida), Mark Kraus, Deputy Director Audubon of Florida (in lieu of Stewart Strahl who was President of Audubon of Florida and served on the Governor's Commission for a Sustainable South Florida), James French (Member of the Governor's Commission on the Everglades), and Terrace "Rock" Salt (former district engineer in Jacksonville with the Army Corps of Engineers and current executive director of South Florida Eco-System Restoration Taskforce). Two, I sought to interview those individuals most prominently noted by my interviewees as active on the CERP formation process or in South Florida water/everglades politics. This means led me to interview Richard Grosso (legal counsel for the Everglades Coalition), Juanita Greene (former vice-president of Friends of the Everglades), and James Garner (lawyer/lobbyist). Altogether, I conducted 13 unstructured interviews, averaging an hour in length. All of the individuals I sought to interview agreed to one.
109. Environmental Affairs Group of the Greater Miami Chamber of Commerce, and the Environmental Economics Council of Audubon of Florida, in conjunction with the South Florida Water Management District, In South Florida, the Environment Is the Economy (1999 June): http://www.audubon.org/campaign/er/library/economy/.
110. Environmental Affairs Group, In South Florida, 2.
111. Environmental Affairs Group, In South Florida, 2-4,
112. Environmental Affairs Group, In South Florida, 7.
113. Environmental Affairs Group, In South Florida, 22.
114. Environmental Affairs Group, In South Florida, 23.
115. Michael Grunwald, "Growing Pains in Southwest Florida," Washington Post (25 June 2002): A1.
116. Jim Garner, former Chair of the South Florida Water Management District, interview by author, tape recording, Marco Island, FL (16 July 2003).
117. Parks, Miami;
118. Bush, "Playground of the USA";
119. Grunwald, "Growing Pains in Southwest Florida."
120. James French, President of the Florida Water Council and member of the Governor's Commission for the Everglades, interview by author, tape recording, Boca Raton, FL (9 July 2003).
121. French, interview by author.
122. Garner, interview by author.
123. Garner, interview by author.
124. Ceclle Betancourt, "Glades champion James D. Webb dies at age 60," Miami Herald (3 January 1997): IB;
125. Mary Doyle, former Assistant Secretary of the U.S. Department of Interior, interview by author, tape recording, Coral Gables, FL (5 June 2003);
126. Terrace "Rock" Salt, Executive Director of the South Florida Eco-System Restoration Taskforce, interview by author, tape recording, Miami, FL (12 June 2003).
127. Doyle, interview by author.
128. Marjory Stoneman Douglas, The Everglades: River of Grass (Sarasota, FL: Pineapple Press, 1988 [1948]);
129. Steven M. Davis and John C. Ogden, eds., Everglades: The Ecosystem and Its Restoration (Delray Beach, FL: St. Lucie Press, 1994);
130. Thomas E. Lodge, The Everglades Handbook: Understanding the Ecosystem (Delray Beach, FL: St. Lucie Press, 1994);
131. Connie M. Toops, The Florida Everglades (Stillwater, MN: Voyageur Press, 1998);
132. Wolf M. Mooij, Robert E. Bennetts, Wiley M. Kitchens and Donald L. DeAngelis, "Exploring the Effect of Drought Extent and Interval on the Florida Snail Kite: Interplay Between Spatial and Temporal Scales," Ecological Modeling 149 (2002): 25-39.
133. Susan Cerulean, ed., The Book of the Everglades (Minneapolis: Milkweed, 2002);
134. Ted Levin, Liquid Land: A Journey Through the Florida Everglades (Athens, GA: University of Georgia Press, 2003).
135. Michael Grunwald, "A Rescue Plan, Bold and Uncertain," Washington Post (23 June 2002): A1.
136. Juanita Greene, former Vice-President of Friends of the Everglades, interview by author, tape recording, Coral Gables, FL (17 July 2003).
137. Doyle, interview by author.
138. The drainage capacity that is going to be lost by filling in this canal is going to be recovered by enhancing the drainage capacity of another major drainage canal.
139. Alfred Runte, National Parks: The American Experience, 3rd ed. (Lincoln, NE: University of Nebraska Press, 1997);
140. Richard West Sellars, Preserving Nature in the National Parks: A History (New Haven: Yale University Press, 1997);
141. Gonzalez, Corporate Power and the Environment, chap. 3.
142. Environmental Affairs Group, In South Florida, 15.
143. Environmental Affairs Group, In South Florida, 16.
144. Environmental Affairs Group, In South Florida, 14.
145. E.R. German, Regional Evaluation of Evapotranspiration in the Everglades (Tallahassee, FL: U.S. Department of the Interior, U.S. Geological Survey, 2000).
146. Committee on Restoration of the Greater Everglades Ecosystem (CROGEE), Aquifer Storage and Recovery in the Comprehensive Everglades Restoration Plan (Washington, D.C.: National Academies Press, 2001);
147. and Regional Issues in Aquifer Storage and Recovery for Everglades Restoration (Washington, D.C.: National Academies Press, 2002).
148. Edward A. Fernald, Elizabeth D. Purdum and Cavell Kyser, eds., Water Resources Atlas of Florida (Tallahassee: Institute of Science and Public Affairs, Florida State University, 1998).
149. Mark Kraus, Deputy Director of Audubon of Florida, interview by author, tape recording, Miami, FL (13 June 2003).
150. Committee on Restoration of the Greater Everglades Ecosystem, Aquifer Storage, 16.
151. Committee on Restoration of the Greater Everglades Ecosystem, Aquifer Storage, 15.
152. For example: Florida Governor Jeb Bush, "Can-Do Thinking on the Everglades," Washington Post (14 August 2002): A29.
153. Murray Edelman, The Symbolic Uses of Politics (Urbana: University of Illinois Press, 1964);
154. and Constructing the Political Spectacle (Chicago: University of Chicago Press, 1988);
155. Matthew A. Cahn, Environmental Deceptions: The Tension Between Liberalism and Environmental Policymaking in the United States (Albany: State University of New York Press, 1995);
156. Willemijn M. Dicke, "Tales of a Successful Memeplex: How the Water Wars in the Everglades Were Changed into a Comprehensive Plan," Knowledge, Technology & Policy 16 (2004): 61-76.
157. John S. Dryzek, "Political Inclusion and the Dynamics of Democratization," American Political Science Review 90 (1996): 475-87;
158. Gonzalez, The Politics of Air Pollution, chap. 6.
159. Michael Grunwald, "Between Rock and a Hard Place," Washington Post (24 June 2002): A1.
160. Richard Pettigrew, Chair of the Governor's Commission for a Sustainable South Florida, interview by author, tape recording, Coral Gables, FL (23 June 2003).
161. Doyle, interview by author.
162. Grunwald, "A Rescue Plan."
163. "Everglades Coalition Announces Priorities for 2003," US. Newswire (11 January 2003).
164. Richard Grosso, Executive Director of the Environmental and Land Use Law Center, interview by author, tape recording, Davie, FL (1 August 2003). The issue that became most salient in the discussion surrounding federal approval of CERP was the question of "water assurances." Proponents of such assurances wanted Congress's authorizing legislation to specify how much of the water captured in the CERP water storage infrastructure would be allocated to serve the regional wildlife. Advocates of this proposal generally hoped that 80 percent of the water captured would be earmarked for wilderness areas. In the end, the authorizing legislation contained no assurances. For a detailed discussion of the federal legislative process that produced the federal government's authorization of CERP see Mary Doyle and Donald E. Jodrey, "Everglades Restoration: Forging New Law in Allocating Water for the Environment," The Environment Lawyer 8 (2002): 259-302.
165. Douglas, The Everglades.
166. Jack E. Davis, '"Conservation is Now a Dead Word': Marjory Stoneman Douglas and the Transformation of American Environmentalism," Environmental History 8 (2003): 53-76.
167. Greene, interview by author.
168. Pettigrew, interview by author.
169. Doyle, interview by author.
170. Salt, interview by author.
171. Salt, interview by author.
172. Pettigrew, interview by author.
173. Governor's Commission for a Sustainable South Florida, Restudy Plan Report (20 January 1999): http://www.state.fl.us/everglades/gcssf/restu dy_plan_a.pdf
174. Pettigrew, interview by author.