Water Quality: Agencies Should Take More Actions to Manage Risks from Harmful Algal Blooms and Hypoxia
Fast Facts
Overgrown algae can make toxins and lead to hypoxia (depleted oxygen) in water bodies, harming people and animals. The National Oceanic and Atmospheric Administration and EPA lead a federal interagency working group to manage harmful algal blooms and hypoxia.
The working group agencies could do more to meet the goals they set in 2016, e.g., by expanding agency monitoring and forecasting of harmful algal bloom and hypoxia events in inland freshwater bodies.
Also, officials told us that more preventive action is needed—but the group's 2016 strategy doesn't include a prevention goal.
Our recommendations address these and other issues we found.
A harmful algal bloom in Milford Lake, Kansas, made the water appear bright green.
Highlights
What GAO Found
The Harmful Algal Bloom and Hypoxia Research and Control Act of 1998, as amended, led to the establishment of a federal interagency working group to help address these environmental issues. The working group is co-chaired by the National Oceanic and Atmospheric Administration (NOAA) and the Environmental Protection Agency (EPA). The working group has developed a national research plan and action strategy, as well as subsequent progress reports and other planning documents to guide its efforts, but it has not implemented a national program under the act. Consistent with leading program management practices, an important next step will be to define what such a program would entail. By doing so, the group would be better positioned to implement the program and enhance federal efforts to manage the risks of harmful algal blooms and hypoxia.
Federal agencies in the working group have taken actions to monitor and forecast harmful algal bloom and hypoxia events in some coastal regions and marine waters of the U.S. but have done less for inland freshwater bodies. NOAA has developed a framework to expand monitoring and forecasting of events in marine waters and the Great Lakes. However, EPA has not done the same for other freshwater bodies, in part because of the large number of inland freshwater bodies that exist. By developing interagency frameworks to expand freshwater monitoring and forecasting, EPA and the working group would be better positioned to manage the risks of such events.
Federal agencies in the working group have taken actions to help state, local, and tribal governments respond to harmful algal bloom and hypoxia events (see fig.). In addition, the working group and others have identified a need for more actions aimed at preventing these events. However, the group does not have a national goal to help focus agencies' efforts on prevention. By developing such a goal, the working group, led by NOAA and EPA, could help to increase federal attention on actions to prevent these events.
Harmful Algal Bloom Advisories Posted by States
Providing guidance to inform decisions on posting public health advisories is one of the ways that federal agencies assist state, local, and tribal governments.
Why GAO Did This Study
Harmful algal blooms—overgrowths of algae in water bodies—can produce toxins that harm humans and animals. These blooms are an environmental problem in all 50 states, according to EPA. Harmful algal blooms are also associated with some occurrences of hypoxia—depleted oxygen levels in a water body in which most animals cannot survive. Hypoxia can harm fisheries and disrupt ecosystems.
Under the act, the interagency working group, with NOAA and EPA leadership, is to maintain and enhance a national harmful algal bloom and hypoxia program, develop a comprehensive research plan and action strategy, and submit various reports to Congress.
GAO was asked to review federal efforts to manage harmful algal bloom and hypoxia risks. This report examines, among other things, (1) working group efforts to implement a national program; (2) agencies' actions to monitor and forecast harmful algal bloom and hypoxia events; and (3) agencies' actions to help state, local, and tribal governments respond to these events. GAO examined agency and working group documents and interviewed federal, state, local, and tribal officials with experience in responding to these events.
Recommendations
GAO is making six recommendations, including that NOAA and EPA define a national program and develop a national goal for prevention actions, and that EPA develop frameworks to expand freshwater monitoring and forecasting. NOAA and EPA agreed with GAO's recommendations.
Recommendations for Executive Action
| Agency Affected | Recommendation | Status |
|---|---|---|
| National Oceanic and Atmospheric Administration |
Priority Rec.
1.
The Administrator of NOAA and the Administrator of EPA, in collaboration with the members of the working group, should document and define what a national HAB and hypoxia program would entail, including identifying the program's resource needs. (Recommendation 1) |
NOAA officials told us that the agency was working with EPA and other members of the interagency HAB and hypoxia working group to develop a national program, including drafting associated goals and identifying resource needs. As of April 2024, NOAA and EPA officials developed a draft description of the components of a national program. These officials also stated that they plan to include information about the national program structure and resource needs in the next national assessment of HABs and hypoxia mandated by the Harmful Algal Bloom and Hypoxia Research and Control Act of 1998, as amended, which is expected to be completed in December 2024. We will continue to follow up on the agencies' efforts and progress.
|
| National Oceanic and Atmospheric Administration | 2. The Administrator of NOAA and the Administrator of EPA, in collaboration with the members of the working group, should develop performance measures to assess the working group's efforts, including the extent to which the recommended goals from the Research Plan and Action Strategy have been achieved. (Recommendation 2) |
NOAA and EPA agreed with this recommendation and in late 2022 stated that they will work together, in collaboration with the working group members, to develop formal performance measures. They anticipate the measures will be complete by December 2024. We will continue to follow up on the agencies' efforts.
|
| Environmental Protection Agency |
Priority Rec.
3.
The Administrator of EPA, working with the other members of the working group, should develop an interagency framework, including prioritizing water bodies and identifying resource needs, to expand monitoring of freshwater HABs and hypoxia. (Recommendation 3) |
EPA agreed with this recommendation and the benefit of an interagency framework to expand monitoring of freshwater HABs and hypoxia. EPA stated in March 2024 that it was collaborating with NOAA and other member agencies of the working group to develop a framework to expand monitoring and forecasting of freshwater HABs and hypoxia. This framework will identify resource needs for freshwater monitoring and forecasting as well as prioritize water bodies in which to expand freshwater monitoring and forecasting capabilities. EPA also stated that this framework would be completed in June 2024. We will continue to follow up on these efforts.
|
| Environmental Protection Agency |
Priority Rec.
4.
The Administrator of EPA, working with the other members of the working group, should develop an interagency framework, including prioritizing water bodies and identifying resource needs, to expand forecasting of freshwater HABs and hypoxia. (Recommendation 4) |
EPA agreed with this recommendation. EPA stated in March 2024 that it was collaborating with NOAA and other member agencies of the working group to develop a framework to expand monitoring and forecasting of freshwater HABs and hypoxia. This framework will identify resource needs for freshwater monitoring and forecasting as well as prioritize water bodies in which to expand freshwater monitoring and forecasting capabilities. EPA also stated that this framework would be completed in June 2024. We will continue to follow up on these efforts.
|
| National Oceanic and Atmospheric Administration |
Priority Rec.
5.
The Administrator of NOAA and the Administrator of EPA, in collaboration with the members of the working group, should develop a national goal for the group focused on efforts to prevent HABs and hypoxia. (Recommendation 5) |
In March 2024, NOAA and EPA officials stated that they are taking actions, in consultation with other members of the working group, to develop a national goal focused on efforts to prevent HABs and hypoxia. In April 2024, NOAA and EPA developed national objectives for the working group, including an objective to help decision-makers prevent new or the expansion of existing HABs or hypoxia events through advancing the dissemination of information on their human-caused drivers. By developing and subsequently incorporating this objective into the national HAB and hypoxia strategy in the 2024 national assessment of HABs and hypoxia, the agencies, through the working group, could help increase federal attention on preventative actions to reduce the risks that HABs and hypoxia pose to tribal, state, and local communities. We will continue to follow up on this recommendation.
|
| National Oceanic and Atmospheric Administration | 6. The Administrator of NOAA and the Administrator of EPA, in collaboration with the members of the working group, should coordinate the development of a more comprehensive body of information on the costs and benefits of mitigation, control, and prevention actions for use by state, local, and tribal governments. (Recommendation 6) |
NOAA and EPA agreed with this recommendation. In late 2022, the agencies stated that they will work together and in collaboration with the working group members to identify the resources and information needed to determine the costs and benefits of mitigation, control, and prevention actions. They also stated that they will build on efforts to engage state, local, and tribal governments in workshops, webinars, trainings, and other venues and to provide expertise, support, and assistance, including funding to assist with mitigation, control, and prevention activities.
|
| Environmental Protection Agency |
Priority Rec.
7.
The Administrator of NOAA and the Administrator of EPA, in collaboration with the members of the working group, should document and define what a national HAB and hypoxia program would entail, including identifying the program's resource needs. (Recommendation 1) |
EPA is working with NOAA and other members of the interagency HAB and hypoxia working group to develop a national program, including drafting associated goals and identifying resource needs. In April 2024, EPA and NOAA officials developed a draft description of the components of a national program. These officials also stated that they plan to include information about the national program structure and resource needs in the next national assessment of HABs and hypoxia mandated by the Harmful Algal Bloom and Hypoxia Research and Control Act of 1998, as amended, which is expected to be completed in December 2024. We will continue to follow up on the agencies' efforts and progress.
|
| Environmental Protection Agency | 8. The Administrator of NOAA and the Administrator of EPA, in collaboration with the members of the working group, should develop performance measures to assess the working group's efforts, including the extent to which the recommended goals from the Research Plan and Action Strategy have been achieved. (Recommendation 2) |
NOAA and EPA agreed with this recommendation and in late 2022 stated that they will work together, in collaboration with the working group members, to develop formal performance measures. They anticipate the measures will be complete by December 2024. We will continue to follow up on the agencies' efforts.
|
| Environmental Protection Agency |
Priority Rec.
9.
The Administrator of NOAA and the Administrator of EPA, in collaboration with the members of the working group, should develop a national goal for the group focused on efforts to prevent HABs and hypoxia. (Recommendation 5) |
EPA and NOAA agreed with this recommendation. In March 2024, EPA and NOAA officials stated that they are taking actions, in consultation with other members of the working group, to develop a national goal focused on efforts to prevent HABs and hypoxia. In April 2024, EPA and NOAA developed national objectives for the working group, including an objective to help decision-makers prevent new or the expansion of existing HABs or hypoxia events through advancing the dissemination of information on their human-caused drivers. By developing and subsequently incorporating this objective into the national HAB and hypoxia strategy in the 2024 national assessment of HABs and hypoxia, the agencies, through the working group, could help increase federal attention on preventative actions to reduce the risks that HABs and hypoxia pose to tribal, state, and local communities. We will continue to follow up on this recommendation.
|
| Environmental Protection Agency | 10. The Administrator of NOAA and the Administrator of EPA, in collaboration with the members of the working group, should coordinate the development of a more comprehensive body of information on the costs and benefits of mitigation, control, and prevention actions for use by state, local, and tribal governments. (Recommendation 6) |
EPA and NOAA agreed with this recommendation. In late 2022, the agencies stated that they will work together and in collaboration with the working group members to identify the resources and information needed to determine the costs and benefits of mitigation, control, and prevention actions. They also stated that they will build on efforts to engage state, local, and tribal governments in workshops, webinars, trainings, and other venues and to provide expertise, support, and assistance, including funding to assist with mitigation, control, and prevention activities.
|