Throughout the first few months of the Trump presidency, the president’s first proposed budget has developed with an overall theme of a large increase in military spending that is paid for with equivalent decreases in domestic discretionary spending. These spending cuts were anticipated to be across the board in all programs except defense and homeland security. In line with Trump’s populist, working class rhetoric (but not necessarily policy that would benefit those who his policy is geared towards) has been the cutting funding and regulations from the Environmental Protection Agency (EPA). Throughout February news began to leak out of the Executive Branch that the EPA’s budget would in fact be cut, reducing it’s budget up to 24% from just over $8 billion to $6 billion.
The specific cuts that would lie within Trump’s proposed EPA budget were first leaked on March 3rd. While many areas within the EPA’s budget anticipated cuts, the most significant program that saw the deepest cuts was the Great Lakes Restoration Initiative (GLRI). With its 2016 funding levels at $300 million, the proposed 2017 budget of just $10 million equates to a staggering 97% proposed cut to GLRI, a bipartisan, apolitical program that has served the eight Great Lakes states and their five Great Lakes since 2010.
At this point I want to provide full disclosure. I am fairly directly involved with and affected by the potential cuts to the GLRI as my job with the Wisconsin Department of Natural Resources (DNR) involves working with cities, counties, other Great Lakes states and their environmental agencies, EPA, NOAA, and other federal agencies in order to facilitate and implement projects with GLRI funding. I therefore have an obvious bias more than the average person. But to make the most of a potential devastating situation, Josh urged me to write about it. With that said, I apologize for the length of this article and will note that this is the shortened version.
At this point you’re probably thinking (read quote in the voice of Sarah Palin), “Of course Sam doesn’t want GLRI to be cut by 97%, he works for the government and is just another bureaucrat who deserves to have the gravy train end at Trump Station!”
I would first like to note that having worked in both the private and public sectors, I can assure you that working for the government is no gravy train. Second, GLRI has created an opportunity since 2010 for the EPA and state agencies to finally have the necessary funding to seriously and successfully address environmental degradation that has plagued the Great Lakes far before the issues were officially recognized during the environmental movement. Third, and possibly most puzzling, GLRI has helped address environmental problems that have plagued the river and lake resources of small towns and cities along the Great Lakes, in many cases bringing money to small towns that would otherwise never have the means to address the massive environmental problems that industrial pollution left by lumber mills, oil refineries, power plants, and other forms of industry left behind to accompany their shuttered buildings and lost jobs.
EPA’s Origin and GLRI’s Predecessor
EPA’s regulations have not always been seen as anti-business. During the agency’s first decade, it saw bipartisan support as it attempted to tackle the side affects of unregulated industry, which allowed business to do what it saw fit and as most cost affective when extracting materials and disposing waste. These practices finally grabbed the public eye and forced policymakers in Washington to address the need for the passed of the Clean Water Act and the creation of the EPA with the infamous burning of the Cuyahoga River in 1969.
Similar to other rivers throughout the industrial Midwest, the Cuyahoga River was lined with steel miles and factories, allowing industry to discharge liquid and solid waste into the river. This waste often lead to contamination of these waterways from substances that are incredibly dangerous and just as expensive to remove, including lead, heavy metals, polycyclic aromatic hydrocarbons (PAHs), polychlorinated biphenyls (PCBs), mercury, and other toxic substances that are detrimental to the health of habitat, wildlife, and humans.
One of the drivers behind the creation of GLRI was to enable work to be completed to address the issues laid out in the Great Lakes Water Quality Agreement (GLWQA), a commitment between the United States and Canada to restore and protect the waters of the Great Lakes. First signed in 1972, the agreement provided the framework for identifying binational priorities and implementing actions that improve water quality.
Additionally, the GLWQA designated geographic area within the Great Lakes Basin that show severe environmental degradation known as “Areas of Concern” or AOCs. The agreement defines AOCs as a geographic area designated by Canada and the U.S. where significant impairment of beneficial uses has occurred as a result of human activities at the local level. The Great Lakes has a total of 43 AOCs, with 26 in the U.S. and an additional 5 shared between the U.S. and Canada.
Impairment of a beneficial use is a reduction in the chemical, physical, or biological integrity of the waters of the Great Lakes sufficient to cause any of the 14 specific problems, or beneficial use impairments (BUIs). A few examples of BUIs that can affect an AOC include restrictions on fish and wildlife consumption, degradation of fish and wildlife populations, tumors or deformities of wildlife, degradation and loss of wildlife habitat, invasive species, point-source and non-point source pollution (ex. runoff from urban areas, such as parking lots, and rural areas, most commonly farm fields), and restrictions on dredging activities due to contaminated sediment.
Local technical advisory committees would do a thorough evaluation of each AOC to determine all BUIs that applied to the AOC. Once projects are implemented to address and ultimately resolve each BUI, a review is conducted to determine the removal of the BUI for the AOC. Once all the BUIs are removed, the AOC is given a final review and delisted.
What is the GLRI?
The Great Lakes Restoration Initiative was first passed by Congress and signed into law in 2010 to accelerate efforts to protect and restore the Great Lakes, the world’s largest system of fresh surface water. The program has been the catalyst for unprecedented federal agency funding and coordination of efforts throughout the Great Lakes watershed. While much of the credit goes to Obama for GLRI, the seed was planted by President George W. Bush. In 2004, Bush signed an executive order that called for an interagency task force to promote regional collaboration to protect the Great Lakes.
Until the passage of GLRI, agencies were only able to complete a minimal number of projects with lower costs due to the overall lack of funding, resulting in AOCs lingering as known problem areas that simply weren’t addressed.
During the 2008 presidential campaign, then Senator Obama promised to bring substantial funding to the Great Lakes region to facilitate work on the ground to fight off invasive species, remediate contaminated soils from industry, and restore wildlife habitat. While this funding would stimulate work on the ground to rehabilitate the AOCs, it would also allow communities to return to their once deteriorated resources and reinvest in the community, as the restored rivers and shorelines offered new opportunities for wildlife restoration, outdoor recreation, and waterfront business opportunities.
How and Where are GLRI Funds Implemented
State governments, local governments, and non-profit organizations are eligible to receive grants from the U.S. Environmental Protection Agency (EPA) for projects addressing toxic substances, invasive species, non-point source pollution, habitat protection, and restoration or accountability, monitoring, evaluation, communication, and partnership building.
An example of this is how the state of Wisconsin manages GLRI funds through the Wisconsin DNR. The DNR has a AOC Coordinator for each of the state’s five AOCs, one of which is on Lake Superior (St. Louis River in Superior/Duluth, MN) and four of which are on Lake Michigan (Lower Menominee River in Marinette/Menominee, MI; Lower Green Bay Fox River in Green Bay; Sheboygan River in Sheboygan; and the Milwaukee Estuary in Milwaukee). Each AOC Coordinator works with local stakeholders, such as city and county governments, non-profits, universities, and federal agencies, to design, implement, and design and monitor projects in each AOC.
For the Wisconsin DNR this has resulted in managing more than $21 million in projects that have been developed, implemented, and completed in Wisconsin since 2010. For the state of Wisconsin as a whole across all government agencies, non-profits, and universities, the state of Wisconsin has received $327 million through federal Fiscal Year (FY) 2016. The entire Great Lakes region has seen roughly $2.2 billion reinvested in Great Lakes communities.
To help give you a better visualization of the extent of projects that GLRI helps fund, the Great Lakes Commission has an excellent project listing and mapping tool that maps out each project with corresponding information on each project as well as map boundary layers for counties and Congressional districts. It looks like it GLRI took a 12 gauge (shotgun for you non-hunting folks) to Google Maps in the most environmentally beautiful and satisfying way.
GLRI’s Uncertain Future
Overall, the reception of the proposed 97% cut to GLRI has been strongly opposed by Democrats in Congress as well as some Republicans. Most federal-level Republicans have not commented as they find their way through the opening months of the Trump presidency. However, the same cannot be said on the state level, with Republican Governors Scott Walker (WI) and Rick Snyder (MI) already voicing their opposition to the proposed budget cuts for federal FY2018.
Unfortunately, the news has not gotten much better recently. On Tuesday (March 29th), President Trump proposed $50 million in immediate budget cuts for this year’s GLRI funding (FY2017) to help cover early costs for the proposed U.S.-Mexican border wall. Coupling this with the proposed $290 million in cuts for FY2018 shows that Trump does not understand the positive results GLRI has for environmental restoration, its successful investment in recreation, and economic opportunities for the communities that live with the waste of the unfettered industrial past. If all of that wasn’t enough, the White House’s final proposed budget released on March 16th left the EPA in a worse position than it was in the earlier leaked budgets, as the administration’s official budget proposal called for a 31% budget cut.
Trump’s proposed budget for the EPA and GLRI is difficult to comprehend as someone who is concerned about environmental policy and management at all levels of government. What makes it even more difficult to understand is how it affects areas of the Rust Belt that have been struggling for decades with economic conditions in many small towns pushing those who live in these communities to vote for Trump in hopes that the government would help revive these areas of the country. Politically, to say this makes no sense would be an understatement. Trump won the entire Rust Belt, but with his proposal to cut next fiscal year’s funding from $300 million to $10 million and cutting current funding by an additional $50 million demonstrates Trump’s disregard for facts and on-the-ground results that matter.
Investment in environmental restoration for the Great Lakes advances the region’s broader strategy to create jobs, stimulate economic development, and invest in freshwater resources and waterfront communities. An in-depth study completed by The Brookings Institute found that by fully implementing the Great Lakes restoration strategy would generate between $80 billion to $100 billion in benefits for the Great Lakes region. The study’s findings include a generation of $6.5 billion to $11.8 billion in direct benefits from tourism, fish, and recreation. It also found a $12 billion to $19 billion increase in property values in degraded shoreline areas, including up to $2.3 billion for the Milwaukee metro area alone.
Ultimately the administrative branch’s proposed budget is just that: a proposed budget. Congress will begin drafting the budget for FY2018 this spring and should have a final budget proposal sometime this summer or early fall. The GLRI has always had bipartisan support, with Republicans giving it more funding than President Obama proposed for FY2017. Of the 48 House districts that are in the Great Lakes Basin, there at 29 Republicans accompanied by 19 Democrats out of the 430 current members of the House (with 5 vacancies). The majority math necessary for Republicans to pass a budget without Democrat support only allows them to lose up to 21 votes. Additionally, the 16 Senate seats from the eight Great Lakes states will not have an easy vote on a GLRI-gutted budget.
I believe I am more rural-oriented and often siding with the interest of fishermen and hunters more than the average progressive. I am in the middle of getting my hunter safety certification, I can’t wait to get back out on the lack and catch some bass and bluegills, and I’m going camping in the Northwoods in early April. I grew up in a town of 8,000 and consider Madison, Wisconsin (population 225,000) to be the big city. But its important to understand how important culture is in the rural Midwest and how it can ultimately be one of the most powerful tools Democrats can utilize to regain the trust of Midwestern, Rust Belt voters.
Culture matters. Midwesterners enjoys microbrews like New Glarus and Toppling Goliath alongside macrobrews like Hamm’s and Busch Light because both beers remind them of their roots. From the thrill of landing your first fish of the day to going out for a hike in your favorite state park so you can watch the sunrise in the middle of a protected natural area, protecting the natural habitat, environmental resources, and the cultural identify of the Great Lakes matters.
The GLRI restores and protects areas that industry has misused, restoring habitat and reducing runoff so our Great Lakes can be healthy again. The GLRI allows people to reconnect with nature by kayaking, fishing, boating, and swimming in the rivers and lakes again. The GLRI removes toxic sediments, making channels navigable and allowing ships to come into port and continue to drive the Great Lakes’ regional economy, which generates $5.8 trillion and 46 million jobs.
Eliminating GLRI would leave serious environmental issues left unaddressed. Eliminating GLRI would cut off funding that private contractors are rewarded to reestablish native species in riparian areas overrun with invasive like phragmites and clean up industrial waste that will plague the Great Lakes until its addressed. Eliminating GLRI will be another devastating political, economic, environmental, and cultural punch to the gut for a region that has known just that for the past four decades.
Cutting GLRI funds by 97% would be the worst thing to happen to the Great Lakes since the Wreck of the Edmund Fitzgerald. The actual wreck, not the song. Man, Gordon Lightfoot crafted one of the most beautiful songs from such a terrible tragedy. And Great Lakes Brewing Company drafted a great beer in the ship’s honor.
Whether you call it the Great Lakes Basin, the Midwest, the Rust Belt, or that place where people go for vacation and hope to catch a trophy musky, the Great Lakes deserves better than to have its funding cut against statistical reasoning and logic. We must address our lingering industrial pollution. If we chose to ignore the lingering impairments that we’ve allowed to happen and cause so much destruction, we will repeat the part of 1940s-1960s American history that we like to gloss over: the lead up to Rachel Carson’s Silent Spring.
Protect the Great Lakes Restoration Initiative. The Great Lakes deserve to be great again.