oEPA URBANWATERS

FEDERAL PARTNERSHIP

Restoring Urban Waters, Revitalizing Communities

Photo by Sean Pavone / iStock

URBAN WATERS
FEDERAL PARTNERSHIP:

Partnership Approaches
for Equitable Climate
Resilience Planning

EPA 840-R-24-001


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Contents

ABSTRACT	1

INTRODUCTION	2

The Urban Waters Federal Partnership 				3

CONVENING POWER OF FEDERAL AGENCIES	4

Grand River/Grand Rapids, Ml			4

CONSISTENCY			5

The Blue River Kansas City, MO					5

ENGAGING KEY PARTNERS AND BUILDING CAPACITY	6

The Patapsco Watershed/Baltimore Region, MD.........	....6

TRUST AND RELATIONSHIP BUILDING	8

The Caho Martin Pena San Juan, PR				8

CONCLUSION	9

Photo by Salexkc/Wikemedia Commons


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Abstract

Hazards from climate change require long-
term and sustainable solutions for the
communities that are most heavily affected.
These communities are often least prepared to
withstand climate impacts due to long-standing
social vulnerabilities such as information
barriers and a lack of investment and access
to resources. To effectively manage the worst
effects of climate change in an equitable way,
there needs to be a consistent effort of long-
term engagement and coordination among
communities, climate technical experts, and
federal, state and local government partners.

The U.S. Environmental Protection Agency's
Urban Waters Federal Partnership program
provides a template of consistent equitable
federal engagement with local partners and
many examples of multi-jurisdictional groups
working together to build solutions. This paper
identifies four critical lessons learned from years
of Urban Waters Federal Partnership work.
Several Partnership location examples are used
to demonstrate the importance of partnerships
across scales and sectors in addressing the
impacts of climate change for all communities.

Photo credit: EPA

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Introduction

Environmental hazards related to climate
change are a significant threat to
overburdened and economically distressed
communities, especially those living in high-
risk areas. Research has shown that impacts
from climate events are unevenly distributed
with the most severe negative effects felt
by the communities who are least prepared
to withstand them due to previous social
vulnerabilities. According to the United States
Global Change and Research Program's
Fifth National Climate Assessment, or NCA5,
examples of social vulnerabilities are "legacies
of inequitable access to residential home loans,
municipal incorporation to isolate wealth
in suburbs, and infrastructure investments
that privileged certain neighborhoods and
municipalities over others have concentrated
low-income people, African Americans, and
other frontline communities in places with high
flood risk."1 Such social vulnerabilities have
made many urban communities particularly
vulnerable to flash flooding, heat islands and
other hazardous effects of a changing climate.2
NCA5 states that "Pre-event social vulnerabilities,
such as a lack of clear title for real estate, lack of
financial capital, and subpar housing leave some
populations at greater risk of negative impacts
following a disaster...These obstacles to recovery
can have long-term generational effects related
to the loss of savings, housing insecurity, and
displacement."3

For decades, conventional hazard mitigation
strategies have not addressed the underlying
issues that have created disproportionate
challenges for overburdened or economically
distressed communities. Lack of coordination
between government and communities often
results in a disjointed recovery and rebuilding
process by the state and federal governments
alone that neglects the largest concerns of
those most heavily impacted. Failure to address
underlying equity issues during a climate
hazard event can have ramifications that last
for decades. The Urban Sustainability Directors
Network's Guide to Equitable Community-Driven
Preparedness Planning (2017) has described the
shortcomings of conventional approaches to
equitable resilience planning:

I "Governments — their decisions,

processes and practices — are important
institutions that have underserved
frontline communities and excluded them,
whether intentionally and unintentionally,
from public decision-making processes.
These discriminatory practices have
resulted in the inequitable distribution
of resources, access to opportunities and
poor life outcomes that many lower-income
populations and communities of color
face. The result is that social inequities can
increase disproportionate climate risk in
these communities."4

Photo credit: iStock

.JL




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Since many institutional policy processes
have these inherent biases, any policy without
an intentional focus on equity will only
perpetuate the disproportionate climate risk
and allocation of resources for underserved
communities, NCA5 Chapter 20: "Social
Systems and Justice" uses the example: "the
use of a cost-benefit analysis for the allocation
of hazard mitigation funding, and disaster-
related assistance for rebuilding, gives priority
to areas of denser population and higher-value
housing stock,"5This and other similarly rigid
methodologies perpetuate norms that hinder
certain communities from bouncing back after
natural disasters and climate-exacerbated
events. By incorporating justice and bottom-
up approaches to systems such as aid and
sustainable planning, communities of all sizes
and demographics can achieve recovery and
recognition.

THE URBAN WATERS FEDERAL PARTNERSHIP

For climate hazards to be addressed in an
equitable way, the root causes of these social
vulnerabilities must be prioritized throughout
the entire mitigation process. Supporting
equitable climate resilience measures is one
of the main goals of the Urban Waters Federal
Partnership.6 The UWFP reconnects urban
communities, particularly those that are
overburdened or economically distressed, with
their waterways by improving coordination
among federal agencies and collaborating with
community-led revitalization efforts to improve
our nation's water systems and promote their
economic, environmental and social benefits.
The 21 UWFP designated locations across the
United States and Puerto Rico form a unique
collaboration of public, private, non-profit,
academic and community institutions. Fifteen
federal agency partners, UWFP Ambassadors
(local partnership coordinators), and over 900
other state, local, Tribal, non-governmental and
community-based organizations partners serve
as a catalyst for local investment. The large

network of active and robust local partners
provides expertise on local priorities, challenges
and resources and over time can garner trust
with local communities. Many of the UWFP
locations and watersheds are facing significant
impacts from climate change. Phoenix, Arizona,
battles record setting heat and poor water
quality. Frequent flooding in the Patapsco
Watershed poses challenges and concerns in
Baltimore, Maryland, In San Juan, Puerto Rico,
and along the eastern coast of the United States,
hurricanes cause damage, displacement and
coastal erosion. Overall, watersheds around
the country face worsening conditions in need
of strategic attention. In the 21 partnership
locations, stakeholders turn to the community of
peers and professionals across the Urban Waters
network to help drive change.

The UWFP provides a forum to convene diverse
groups of stakeholders and subject matter
experts to collaborate on multi-jurisdictional
watershed protection and restoration efforts.
This collaborative partnership approach enables
the UWFP to support and shepherd complex
projects over many years, seeing them through
from beginning to end. Additionally, UWFP
designated locations have fostered inclusive and
equitable hazard mitigation planning and climate
adaptation projects through a commitment to
the local community's vision. A community-first
convening strategy ensures stakeholders are
equal partners in efforts to mitigate, adapt and
build resilience; their priorities remain on the

Photo credit: EPA

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forefront throughout the process; and their
expertise is the centerpiece of climate solutions.
This paper identifies critical lessons learned
from years of UWFP experience and helps
demonstrate the importance of partnerships
across scales and sectors in addressing the
impacts of climate change for all communities.

CRITICAL LESSSONS LEARNED

The following are critical lessons learned from
equitable hazard mitigation and resilience planning
efforts of the Urban Waters Federal Partnership:

•	The weight and convening power of federal
agencies help attract and sustain the participation
of key stakeholders and funding;

•	Consistent coordination across a wide range of
activities helps to maintain continuity of focus over
time;

•	Engagement and strategic convening unite
key partners with technical expertise, garner
applicable resources, build capacity of
organizations and develop useful information for
decision making; and

•	Trust and relationship building engenders
stakeholders' willingness to invest time and
energy in the collaboration.

Measures are needed to provide near-term
hazard relief for communities disproportionately
experiencing the effects of climate change
and a long-term and sustainable vision that
addresses social vulnerabilities causing the
disproportionate effects. The UWFP provides
a template of consistent federal engagement
with local partners and many examples of multi-
jurisdictional groups working together to build
solutions. The four lessons described above are
critical for a climate hazard mitigation project
to be successful. Several UWFP projects provide
examples of how these lessons have been
implemented.

Convening
Power of
Federal
Agencies

The weight and convening power of federal
agencies helps attract and sustain the
participation of key stakeholders and funding.

GRAND RIVER/GRAND RAPIDS, MICHIGAN

At 252 miles long, the Grand River is the longest
river in Michigan, flowing through several cities,
including Grand Rapids, before emptying into
Lake Michigan. The Lower Grand Watershed
containing Grand Rapids is the most urban
section of the river.7 The rapids for which the
city was named were replaced with dams in
the 19th century, leveling out the 18-foot drop
and keeping water levels constant throughout
the year for industrial purposes and easy
transportation of goods like lumber. Despite the
industrial uses of these dams, their presence
matched with urban encroachment, floodwalls
and climate change have created areas along
the river that impede sediment transport
and fish migration and create treacherous
waters for recreational river users.8 In recent
decades, climate change has exacerbated
the issues of precipitation variation, rising
temperatures and extreme weather that now
cause intensified or sometimes unprecedented
circumstances in local urban centers. The
Lower Grand Organization of Watersheds, or
LGROW, identified a need to add a climate
component to their 2011 Lower Grand River
Watershed Management Plan to address these
rising hazards. LGROW wanted community

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input in developing their Lower Grand River
Watershed Resilience Action Plan to reflect
community priorities, so they partnered with
the Environmental Protection Agency to use the
new Equitable Resilience Builder tool to develop
community workshops.9

The Equitable Resilience Builder was developed
by the EPA to support communities in equitable
resilience planning by providing instructions and
activities to prioritize community engagement
techniques, equity assessment, root cause
analysis and much more. The Equitable Resilience
Builder's guiding principles focus on relationship
and trust building within communities, using
local data, recognizing trauma, facilitating
actions, providing access for under resourced
communities and adapting to users' specific
contexts. Grand Rapids was a pilot location for
this new EPA tool made publicly accessible in
October 2023. LGROW partnered with the EPA
and hosted three workshops for different sub-
watershed communities focused mainly on how
LGROW might build equity into their Watershed
Resilience Plan. Community members and
participants provided crucial insight into some of
the ecological climate-related challenges faced
such as heat, water quality and flooding. They also
discussed how factors such as a lack of affordable

Photo credit: iStock

housing and living wages play a role in 'cascading
impacts'from the ecological hazards, particularly
for low-income communities and communities of
color. The Equitable Resilience Builder workshops
produced a list of priority actions for each sub-
watershed to increase resilience in the Watershed
Resilience Plan. The workshops also gave LGROW
a better understanding of community priorities
through trust and relationship building that will
continue to expand in the future. Having federal
agency tools at the disposal of community groups
adds another means of approach to resiliency
planning that would otherwise be unavailable.

Consistency

Consistent coordination across a wide range
of activities helps to maintain continuity of
focus over time.

THE BLUE RIVER KANSAS CITY, MISSOURI

The Blue River Urban Waters location (formerly
Middle Blue River) in Kansas City, Missouri,
formed in June 2013 around several existing
projects designed to restore a portion of the Blue
River ecosystem with overlapping geographies
in the middle reach of the Blue River.10 A main

challenge for the Blue River is poor water
quality due to sedimentation, nutrient overload,
combined sewer overflows and invasive species.
The river flows 42 miles northeast from its rural
headwaters in Kansas through underserved
communities and post-industrial stretches into
Missouri and the Missouri River, the source of
Kansas City's drinking water.11 Unpredictable
future climate events will likely further
exacerbate existing combined sewer overflows
and water quality issues as the surrounding
ecosystem continues to be affected.

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In 2012, the Heartland Conservation Alliance
and Mid-America Regional Council began
serving as co-leads for the federal partnership
until the Heartland Conservation Alliance took
over as the sole Ambassador organization in
2020. The Heartland Conservation Alliance
was founded in part with the funding of an
Urban Waters Small Grant. The UWFP and
the Heartland Conservation Alliance have
partnered together for over a decade to
protect, connect and restore the Blue River
for the benefit and enjoyment of all people in
Kansas City, especially the communities most
vulnerable to the effects climate change has on
the Blue River. The consistent presence of the
Heartland Conservation Alliance and the UWFP
Ambassador allows the Alliance and UWFP to be
recognized as federally connected partners the
communities can trust to effectively coordinate
and garner funding to support an overall vision
for the future of the Blue River.

As the Ambassador host organization, the
Heartland Conservation Alliance plays an

instrumental role in the Renew the Blue initiative.
Renew the Blue is a co-branding messaging
campaign seeking to coordinate efforts to
protect the watershed between organizations
and stakeholders. The flagship project on the
Blue River is the Blue River Greenway which
seeks to connectjohnson County, Kansas, to
Jackson County, Missouri, with a 43-mile corridor
of ecological protection along the river. To date,
Heartland Conservation Alliance has secured $8
million toward implementation of the initiative,
including the Blue River Greenway project. A
centerpiece of the Blue River Greenway project
includes efforts to achieve the region's 2050
targets of 80% reduction in greenhouse gas
emissions through the protection of floodplain
woodlands and increased tree cover.12
The greenway will also reduce flooding by
introducing green infrastructure and restoring
the Blue River's floodplain, this aspect will
improve stream health while protecting human
life, property, and infrastructure.

Engaging Key Partners
and Building Capacity

Engagement and strategic convening unite
key partners with technical expertise,
garner applicable resources, build capacity of
organizations and develop useful information for
decision making.

THE PATAPSCO WATERSHED/BALTIMORE
REGION, MARYLAND

Baltimore, Maryland, sits on the country's
largest estuary, the Chesapeake Bay. One of
the watersheds emptying into the Bay is the
375,000-acre Patapsco River Watershed which

spans four counties, flows to the Baltimore City
Harbor and ultimately empties into the Bay. In
addition to the Patapsco River, the Patapsco
River Watershed includes Gwynns Falls, Jones
Falls and Baltimore Harbor.13 The eastern part
of Baltimore City and the Patapsco watershed
has become highly developed and is subject
to water quality issues from trash and urban
run-off, including pollutants contributed from
vacant lots. Flooding has always been a concern
within this watershed, but with the intensifying
effects of climate change it will present a larger
and far more damaging challenge into the

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i an a a

Photo credit: iStock

future.14 In 2016 and 2018, deadly flash flooding
events in Baltimore City and the surrounding
suburbs resulted in devastating damage, These
flooding events are also a good example of how
social vulnerabilities affect disaster recovery. The
2016 event caused over $65 million in reduced
economic activity and job loss.15 In Howard
County, Ellicott City—whose population is affluent
and mostly white—received extensive media
attention and $167 million in aid following the two
floods. While just up the road the neighborhood
of Irvington—a largely Black and low-income
community—received a substantially smaller
amount of media attention and aid from the same
events while experiencing extensive damages
and only after significant lobbying from the
Stillmeadow Community Fellowship.15 Stillmeadow
is a small church that supported the community
before the flood, offering services including food
and clothing distribution. By doing that work with
the resources available, they attracted the support
of the U.S. Department of Agriculture Forest
Service and the U.S. Army Corps of Engineers.
Stillmeadow became a Community Resiliency Hub
and a community touch point following the 2018
flooding. The Community Resiliency Hub Program
is a Baltimore City initiative aimed at supporting
and better provisioning community organizations
so that in the event of a flood, under-resourced
communities are better prepared to respond.17

The Patapsco Urban Waters location is led by
the Baltimore Field Station of the Forest Service
with support from the UWFP Ambassador.
The Ambassador position was initially
staffed by the consulting group SavATree
and is currently staffed by the University
of Maryland Cooperative Extension. Since its
formation in 2011, the Patapsco UWFP serves as
a convening space for stakeholders and technical
experts to collaborate on challenges in the
watershed. The Patapsco Urban Waters location
also partners with community groups in West
Baltimore, including Stillmeadow Community
Fellowship. Already a strong presence in the
community, the Forest Service has further
supported Stillmeadow with mentoring in
organizational capacity building and grant
management. In 2023, five years after the flooding
in 2018, Stillmeadow received a $2 million grant
from the Forest Service for their PeacePark. The
grant supported the creation of green space in
the area for future flood mitigation and forestry
education.18 Stillmeadow remains a strong
partner for the UWFP as they continue together
to increase the community's flood resilience
capacity.

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Trust and

Relationship Building

Trust and relationship building engenders
stakeholders' willingness to invest time and
energy in the collaboration.

THE CANO MARTIN PENA SAN JUAN,
PUERTO RICO

The Caho Martin Pena is a 3.75-mile tidal
channel running through the urban center of
San Juan, Puerto Rico, connecting San Juan
Bay and the San Jose Lagoon. The channel has
faced intense pollution and regular flooding
from inadequate infrastructure in the densely
populated and underserved communities that
live adjacent to the waterways. To address
this challenge, the ENLACE Caho Martin Pena
Project Corporation was created and funded
by the government of Puerto Rico in 200419 to
rehabilitate the channel and to promote social
and economic development in the adjacent
communities.20 Additionally, efforts to address
water infrastructure in the Cantera community
were spearheaded by the Company for the
Integral Development of the Cantera Peninsula.21

In partnership with ENLACE, the U.S. Army
Corps of Engineers planned an ecosystem
restoration project on the Caho Martin Pena,
including dredging of the channel to restore the
natural hydraulic connection between the bay
and lagoon and flushing out the pollutants.22
In 2011, ENLACE received an Urban Waters
Small Grant to support work on the channel.
The grant was awarded to increase grassroots
empowerment by promoting an understanding
of environmental degradation in the channel
and for continued engagement with the
community in its restoration through education

and democratic action. Following the grant, the
Caho Martin Pena UWFP location was officially
designated in 2013 and started plugging into
ongoing ecosystem restoration efforts by gaining
the trust of the community-based organizations.
The partnership's main intention was to bolster
the work already being done in the community
and to further elevate local priorities. The
partnership has worked to support ENLACE
and Cantera bringing together federal, state
and local partners to foster a structure for
coordination and improve access to resources.
This collaboration helps transform community-
led initiatives into implementable workplans.

Led by ENLACE in 2022, the Caho Martin Pena
Comprehensive Infrastructure Master Plan was
completed with the UWFP Ambassador serving
as a fundamental collaborator in the process.
The plan incorporates green infrastructure that
enhances water quality, restores ecological
function Caho Martin Pena Urban Waters

Photo credit: ENLACE

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location continues to work with local government
and community-based organizations in the area
as a reliable convener and collaborator with over
a decade of trusted partnership. In 2023, The
Caho Martin Peha Comprehensive Infrastructure

Master Plan was awarded the inaugural Global
Impact Award by the American Society of
Landscape Architects and the International
Federation of Landscape Architects.23

Conclusion

Climate change poses significant social,
economic and ecological threats to
overburdened communities in high-risk areas.
Communities least prepared to withstand
environmental hazards caused by climate
change are routinely facing increases in
intensity and frequency of negative effects.

Legacies of inequities and insufficient resources
for sustainable planning create this climate
vulnerability, these barriers make it even harder
to achieve an equitable recovery following a
climate event. With intentional intervention
of resources and visibility, these communities
can move toward sustainability and progress.
Climate action needs to include an intentional
focus on equity, otherwise the disproportionate
climate risk and insufficient allocation of
resources for underserved communities will
only grow more extreme as climate change
worsens. It is critical that solutions be centered
on the lived experience and expertise of these
communities and committed to collaboration to
ensure equitable and effective outcomes.

Integrating equity practices with hazard
mitigation is an effective long-term approach
to helping overburdened and underserved
communities adapt to climate change. These

practices focus on the underlying issues of
vulnerability and increased stability of social
and physical systems. The UWFP has experience
and success engaging with communities
with high climate risk. UWFP locations have
long fostered inclusive and equitable hazard
mitigation planning and climate adaptation
projects through a commitment to enabling the
local community vision throughout the entire
mitigation process. As a result, the communities
around designated Urban Waters locations
have fostered their resilience, putting plans
and infrastructure in place to avoid debilitating
damage and disorder following climate events.
The weight and convening power of federal
agencies, consistent coordination across
activities, ability to engage a wide variety
of partners and build stakeholder trust are
valuable benefits of an Urban Waters Federal
Partnership location and can be directly credited
for their progress in equitable climate resilience.
This framework of engagement provides
a sustainable approach for communities
to co-define their own equitable solutions,
strengthening their existing partnerships while
growing their networks to include new and
optimized connections.

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