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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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Drought Sensitivity of the Amazon Rainforest
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Amazon forests are a key but poorly understood component of the global carbon cycle. If, as
anticipated, they dry this century, they might accelerate climate change through carbon losses and
changed surface energy balances. We used records from multiple long-term monitoring plots across
Amazonia to assess forest responses to the intense 2005 drought, a possible analog of future events.
Affected forest lost biomass, reversing a large long-term carbon sink, with the greatest impacts
observed where the dry season was unusually intense. Relative to pre-2005 conditions, forest subjected
to a 100-millimeter increase in water deficit lost 5.3 megagrams of aboveground biomass of carbon per
hectare. The drought had a total biomass carbon impact of 1.2 to 1.6 petagrams (1.2 × 1015 to
1.6 × 1015 grams). Amazon forests therefore appear vulnerable to increasing moisture stress, with the
potential for large carbon losses to exert feedback on climate change.
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Editorial : Half-hearted engineering
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Climate warming is not the only consequence of rising levels of atmospheric greenhouse gases. The only way to counter all effects, including those on rainfall and ocean acidity, is to remove carbon from the climate system. Arguably, some of the most immediate impacts of a warming climate will result from shifts in global rainfall patterns. The potential threats are diverse, and include water scarcity in the lush Amazonian
rainforest; increased drought in the already parched southwestern United States; rainfall replacing snow in low-latitude mountain regions; and a rise in flooding in temperate climates. Whatever the exact outcome of
these threats, the stability of the world’s economy and ecosystem both depend on maintaining precipitation patterns more or less as they are today.
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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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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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What is Ecological Drought? Exploring its impacts on natural and cultural resources
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In 2017 the National Climate Change and Wildlife Science Center (NCCWSC), in partnership with the National Conservation Training Center (NCTC), will be dedicating their webinar series to ecological drought with presentations from NCCWSC and the DOI Climate Science Centers (CSCs).
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