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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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Conifer regeneration following stand-replacing wildfire varies along an elevation gradient in a ponderosa pine forest, Oregon, USA
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Climate change is expected to increase disturbances such as stand-replacing wildfire in many ecosystems, which have the potential to drive rapid turnover in ecological communities. Ecosystem recovery, and therefore maintenance of critical structures and functions (resilience), is likely to vary across environmental gradients such as moisture availability, but has received little study. We examined conifer regeneration a decade following complete stand-replacing wildfire in dry coniferous forests spanning a 700 m elevation gradient where low elevation sites had relatively high moisture stress due to the combination of high temperature and low precipitation. Conifer regeneration varied strongly across the elevation gradient, with little tree regeneration at warm and dry low elevation sites. Logistic regression models predicted rapid increases in regeneration across the elevation gradient for both seedlings of all conifer species and ponderosa pine seedlings individually. This pattern was especially pronounced for well-established seedlings (P38 cm in height). Graminoids dominated lower elevation sites following wildfire, which may have added to moisture stress for seedlings due to competition for water. These results suggest moisture stress can be a critical factor limiting conifer regeneration following stand- replacing wildfire in dry coniferous forests, with predicted increases in temperature and drought in the coming century likely to increase the importance of moisture stress. Strongly moisture limited forested sites may fail to regenerate for extended periods after stand-replacing disturbance, suggesting these sites are high priorities for management intervention where maintaining forests is a priority.
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Extreme Weather Events in Europe: preparing for climate change adaptation
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This study arises from the concern that changes in weather patterns will be one of the principal effects of climate change and with these will come extreme weather. This is of considerable consequence in Europe as it impacts on the vulnerability of communities across the continent and exposes them to environmental risks.
It is now widely recognised that failures in international efforts to agree on the action necessary to limit global climate change mean that adaptation to its consequences is necessary and unavoidable (Solomon et al., 2007). The changes anticipated in the occurrence and character of extreme weather events are, in many cases, the dominant factor in designing adaptation measures. Policy communities within the EU have begun to consider appropriate responses to these changes and an EU adaptation strategy is under active development and implementation. There are also sectoral EU initiatives, for example on water shortages and heat waves, and, at a regional level, on planning for floods and storms. The basic and unavoidable challenge for decision makers is to find workable and cost-effective solutions when faced with increased probabilities of very costly adverse impacts. Information about the nature and scale of these changes is essential to guide decisions on appropriate solutions. Agenda-setting for climate change and adaptation has to take place in a social or/and political setting. Scientific information about temporal changes in the probability distributions of extreme weather events over Europe, the main focus of this report, is important for informing the social and political processes that it is hoped will lead to adequate climate-change adaptation measures in Europe.
This report is focused on providing a working-level assessment of the current state of the quantitative understanding of relevant extreme weather phenomena and their impacts.
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Changes in forest productivity across Alaska consistent with biome shift
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Global vegetation models predict that boreal forests are particularly sensitive to a biome shift during the 21st century. This shift would manifest itself first at the biome's margins, with evergreen forest expanding into current tundra while being replaced by grasslands or temperate forest at the biome's southern edge. We evaluated changes in forest productivity since 1982 across boreal Alaska by linking satellite estimates of primary productivity and a large tree-ring data set. Trends in both records show consistent growth increases at the boreal–tundra ecotones that contrast with drought-induced productivity declines throughout interior Alaska. These patterns support the hypothesized effects of an initiating biome shift. Ultimately, tree dispersal rates, habitat availability and the rate of future climate change, and how it changes disturbance regimes, are expected to determine where the boreal biome will undergo a gradual geographic range shift, and where a more rapid decline.
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Climate change and disruptions to global fire activity
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Future disruptions to fire activity will threaten ecosystems and human well-being throughout the world, yet there are few fire projections at global scales and almost none from a broad range of global climate models (GCMs). Here we integrate global fire datasets and environmental covariates to build spatial statistical models of fire probability at a 0.58 resolution and examine environmental controls on fire activity. Fire models are driven by climate norms from 16 GCMs (A2 emissions scenario) to assess the magnitude and direction of change over two time periods, 2010–2039 and 2070–2099. From the ensemble results, we identify areas of consensus for increases or decreases in fire activity, as well as areas where GCMs disagree. Although certain biomes are sensitive to constraints on biomass productivity and others to atmospheric conditions promoting combustion, substantial and rapid shifts are projected for future fire activity across vast portions of the globe. In the near term, the most consistent increases in fire activity occur in biomes with already somewhat warm climates; decreases are less pronounced and concentrated primarily in a few tropical and subtropical biomes. However, models do not agree on the direction of near- term changes across more than 50% of terrestrial lands, highlighting major uncertainties in the next few decades. By the end of the century, the magnitude and the agreement in direction of change are projected to increase substantially. Most far-term model agreement on increasing fire probabilities (;62%) occurs at mid- to high-latitudes, while agreement on decreasing probabilities (;20%) is mainly in the tropics. Although our global models demonstrate that long-term environmental norms are very successful at capturing chronic fire probability patterns, future work is necessary to assess how much more explanatory power would be added through interannual variation in climate variables. This study provides a first examination of global disruptions to fire activity using an empirically based statistical framework and a multi-model ensemble of GCM projections, an important step toward assessing fire-related vulnerabilities to humans and the ecosystems upon which they depend.
Key words: climatic constraints; ensemble model uncertainty; flammability; global climate models (GCM); GCM agreement; global fire probabilities; resources to burn; spatial statistical models; species distribution models.
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Effects of drought on avian community structure
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Droughts are expected to become more frequent under global climate change. Avifauna depend on precipitation for hydration, cover, and food. While there are indications that avian communities respond negatively to drought, little is known about the response of birds with differing functional and behavioural traits, what time periods and indicators of drought are most relevant, or how response varies geographically at broad spatial scales. Our goals were thus to determine (1) how avian abundance and species richness are related to drought, (2) whether community variations are more related to vegetation vigour or precipitation deviations and at what time periods relationships were strongest, (3) how response varies among avian guilds, and (4) how response varies among ecoregions with different precipitation regimes. Using mixed effect models and 1989–2005 North American Breeding Bird Survey data over the central United States, we examined the response to 10 precipitation- and greenness- based metrics by abundance and species richness of the avian community overall, and of four behavioural guilds. Drought was associated with the most negative impacts on avifauna in the semiarid Great Plains, while positive responses were observed in montane areas. Our models predict that in the plains, Neotropical migrants respond the most negatively to extreme drought, decreasing by 13.2% and 6.0% in abundance and richness, while permanent resident abundance and richness increase by 11.5% and 3.6%, respectively in montane areas. In most cases, response of abundance was greater than richness and models based on precipitation metrics spanning 32-week time periods were more supported than those covering shorter time periods and those based on greenness. While drought is but one of myriad environmental variations birds encounter, our results indicate that drought is capable of imposing sizable shifts in abundance, richness, and composition on avian communities, an important implica- tion of a more climatically variable future.
Keywords: abundance, birds, drought, Great Plains, greenness, mixed effects models, North American Breeding Bird Survey, precipitation, richness, United States
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Declining annual streamflow distributions in the Pacific Northwest United States, 1948–2006
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Much of the discussion on climate change and water in the western United States centers on decreased snowpack and earlier spring runoff. Although increasing variability in annual flows has been noted, the nature of those changes is largely unexplored. We tested for trends in the distribution of annual runoff using quantile regression at 43 gages in the Pacific Northwest. Seventy-two percent of the stations showed significant (a = 0.10) declines in the 25th percentile annual flow, with half of the stations exceeding a 29% decline and a maximum decline of 47% between 1948 and 2006. Fewer stations showed statistically significant declines in either median or mean annual flow, and only five had a significant change in the 75th percentile, demonstrating that increases in variance result primarily from a trend of increasing dryness in dry years. The asymmetric trends in streamflow distributions have implications for water management and ecology well beyond those of shifted timing alone, affect both rain and snow-dominated watersheds, and contribute to earlier timing trends in high- elevation watersheds.
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Beaver (Castor canadensis) mitigate the effects of climate on the area of open water in boreal wetlands in western Canada
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Shallow open water wetlands provide critical habitat for numerous species, yet they have become increasingly vulnerable to drought and warming temperatures and are often reduced in size and depth or disappear during drought. We examined how temperature, precipitation and beaver (Castor canadensis) activity influenced the area of open water in wetlands over a 54- year period in the mixed-wood boreal region of east-central Alberta, Canada. This entire glacial landscape with intermittently connected drainage patterns and shallow wetland lakes with few streams lost all beaver in the 19th century, with beaver returning to the study area in 1954. We assessed the area of open water in wetlands using 12 aerial photo mosaics from 1948 to 2002, which covered wet and dry periods, when beaver were absent on the landscape to a time when they had become well established. The number of active beaver lodges explained over 80% of the variability in the area of open water during that period. Temperature, precipitation and climatic variables were much less important than beaver in maintaining open water areas. In addition, during wet and dry years, the presence of beaver was associated with a 9-fold increase in open water area when compared to a period when beaver were absent from those same sites. Thus, beaver have a dramatic influence on the creation and maintenance of wetlands even during extreme drought. Given the important role of bea- ver in wetland preservation and in light of a drying climate in this region, their removal should be considered a wetland disturbance that should be avoided.
Beaver
Castor canadensis
Drought East-central Alberta Elk Island National Park Mixed-wood boreal Wetland conservation
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Can forest management be used to sustain water-based ecosystem services in the face of climate change?
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Forested watersheds, an important provider of ecosystems services related to water supply, can have their structure, function, and resulting streamflow substantially altered by land use and land cover. Using a retrospective analysis and synthesis of long-term climate and streamflow data (75 years) from six watersheds differing in management histories we explored whether streamflow responded differently to variation in annual temperature and extreme precipitation than unmanaged watersheds. We show significant increases in temperature and the frequency of extreme wet and dry years since the 1980s. Response models explained almost all streamflow variability (adjusted R2 . 0.99). In all cases, changing land use altered streamflow. Observed watershed responses differed significantly in wet and dry extreme years in all but a stand managed as a coppice forest. Converting deciduous stands to pine altered the streamflow response to extreme annual precipitation the most; the apparent frequency of observed extreme wet years decreased on average by sevenfold. This increased soil water storage may reduce flood risk in wet years, but create conditions that could exacerbate drought. Forest management can potentially mitigate extreme annual precipitation associated with climate change; however, offsetting effects suggest the need for spatially explicit analyses of risk and vulnerability.
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BOTANY AND A CHANGING WORLD: INTRODUCTION TO THE SPECIAL ISSUE ON GLOBAL BIOLOGICAL CHANGE
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The impacts of global change have heightened the need to understand how organisms respond to and influence these changes. Can we forecast how change at the global scale may lead to biological change? Can we identify systems, processes, and organisms that are most vulnerable to global changes? Can we use this understanding to enhance resilience to global changes? This special issue on global biological change emphasizes the integration of botanical information at different biological levels to gain perspective on the direct and indirect effects of global change. Contributions span a range of spatial scales and include both ecological and evolutionary timescales and highlight work across levels of organization, including cellular and physiological processes, individuals, populations, and ecosystems. Integrative botanical approaches to global change are critical for the eco- logical and evolutionary insights they provide and for the implications these studies have for species conservation and ecosys- tem management.
Key words: community dynamics; flowering phenology; functional traits; global biological change; invasive species; land-use patterns; plant–microbial interactions; species interactions.
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