Interagency Task Force Report
Levee Repair and Associated Restoration Projects
California Floods of 1997
August 6,1997
a. OMB memorandum dated 18 Feb 1997, Subject: Floodplain Management and Procedures For Evaluation and Review of Levee and Associated Restoration Projects.
b. OMB memorandum dated 25 April 1997, subject: Monthly Agency Reports on the Status of Levee Repair and Associated Restoration.
2. PURPOSE: To provide an updated monthly status report for activities during the last 30 days related to levee repairs and non-structural alternatives as required by the above references.
3. U.S. ARMY CORPS OF ENGINEERS ACTIONS TAKEN: In response to the December 96 - January 97 flooding situation, the U.S. Army Corps of Engineers assisted State and local authorities in flood fighting while coordinating with other Federal and State agencies on operations of reservoirs to minimize the downstream effects as much as possible. After the December-January floods, the San Francisco and Sacramento District offices of the U.S. Army Corps of Engineers issued a Public Notice for levee rehabilitation assistance under the PL 84-99 program. The Public Notice process ended May 10, 1997.
During the period between the time of the public notice and the floodwaters receding, the districts implemented an interim flood protection plan. The plan provided flood protection for the remainder of the flood season by maximizing the use of reservoirs and completing initial levee rehabilitation. This phase provided for a 25-year level of protection. The District offices are currently working on Project Information Reports (PIR’s). Each PIR will address the costs, benefits, environmental assessments, etc. The PIR’s evaluate structural repair of the levee as well as non-structural alternatives. The district will restore a structure’s flood protection to a pre-flood level and return the structure to its pre-flood condition if a non-structural alternative is not identified or agreed upon by the sponsor and the lead agency.
The Corps is continuing with the funded studies identified in the previous report. Efforts will continue under Phase III to identify potential NSA’s and to repair damaged structures in accordance with established procedures.
with the local flood control sponsor and other agencies such as the Fish and Wildlife Service, National Marine Fisheries Service, State Fish and Game Agency and other appropriate agencies to investigate the damages and discuss the repairs or potential for a non-structural solution to the damaged levee. In addition, the Sacramento District hired an Architectural Engineer to assist them in non-structural solutions process.
The contractor in coordination with the ITF participated in a third regional public outreach meeting. The U.S. Army Corps of Engineers and the California Department of Water Resources hosted their third outreach meeting on July 24, 1997, in Marysville, Yuba County. The meeting was the third in a series of meetings to educate and inform the Reclamation; Levee; and Flood Control Districts; together with concerned citizens on flood plain management activities currently underway by the U.S. Army Corps of Engineers; and to discuss recommendations of the Governor’s Flood Emergency Action Team (FEAT) report. A copy of the FEAT report was provided to the attendees. The meeting provided an opportunity to present the public with additional tools and avenues necessary for a successful flood recovery program. A discussion of a new challenge for managing flood water that addressed the term known as "Nonstructural Alternatives" was presented. A brochure entitled "Meeting the CHALLENGE" was distributed to the attendees. The meeting also provided a forum for questions and answers.
For those projects for which a non-structural solution is a possibility, meetings are conducted first with the potential land owners involved. If the non-structural solution is endorsed by the land owners in the responsible Reclamation District, then a series of follow up meetings are conducted. Congressional interest are kept informed. The Corps continues to have an excellent relationship with the State and the outreach meetings are proving to be beneficial.
On July 23, 1997, a coordination meeting was held at the U.S. Army Corps of Engineers Sacramento District, with representatives of several Non-Government Organizations (NGO). Participating in the meeting were representatives from Nature Conservancy, Ducks Unlimited, Sierra Club, and Friends of the River. The purpose of the meeting was to discuss short and long term efforts to date, seek input and recommendations on future direction for nonstructural efforts and outreach and coordination needs regarding flood plain management issues. Though most of the focus was on the Sacramento and San Joaquin River Basin’s, changes required in nationwide policy were highlighted.
A second meeting was held on August 6, 1997. The purpose of the meeting was to solicit further input from the Farm Bureau and those directly associated with issues related to the non-structural options. There was a brief overview of the background of PL 84-99 activities and the OMB guidance that led to investigation of non-structural options under PL 84-99.
In summary, both of the meetings held with NGO representatives were successful. Efforts in the future must include their input along with private citizens. See Section 8.
6. FUNDING: Funds in the amount of $67,065,401 have been allocated as of the end of July 1997 for flood fighting and levee repair by the U.S. Army Corps of Engineers. A supplemental appropriation for the Flood Control and Coastal Emergencies in the amount of $415,000,000 was approved and signed by the President. Funds are considered adequate for the PL84-99 program in the State of California.
7. PERSONNEL: There are 78 personnel working on the levee repair and associated restoration effort. There are 75 at the District level, 3 on the ITF Staff.
Agencies continue to struggle with their respective workloads. The agencies have been reminded that they must become involved early in the process, if the non-structural alternatives program is to be addressed appropriately. Agencies within the ITF structure are currently reviewing initial and final reports and working together closely with Federal and State environmental agencies and local officials as well as the CALFED program and the Department of Water Resources (DWR), which is addressing recommendations in the Governor’s Flood Emergency Action Team report. While the main focus for non-structural alternatives will be on the Cosumnes and lower San Joaquin Rivers, the ITF is exploring other sites for potential non-structural solutions.
On July 24, 1997 the U.S. Army Corps of Engineers and the California Resources Agency disseminated a joint memorandum on the non-structural alternative program. This effort was a continuation of the Outreach Program. See enclosure 1.
Status report of the four proposed NSAs:
RD 2099: The landowner has accepted the offer from USFWS and land acquisition and transfer process is underway. The FONSI has been signed and was executed on July 28, 1997. The U.S. Army Corps of Engineers, Sacramento District, USFWS and the State of California are coordinating with the sponsor. The U.S. Army Corps of Engineers, Sacramento District has initiated the property and topo survey to determine existing FCW design elevation and the impact on adjacent landowners of abandonment of the existing levee. The USFWS has indicated that the existing dairy operation facilities will be demolished and only the family housing facility will need to be flood proofed.
RD 2100/2102: The landowners for RD 2100 have not accepted USFWS offer, negotiations are still underway. The landowner of 2102 has been on vacation and has not evaluated the USFWS offer at this time.
RD 2124: Reclamation District 2124 has indicated by letter, dated July 2, 1997, they will accept responsibilities of local sponsorship. A draft PCA has been completed and forwarded for their review. A meeting was scheduled for August 8, 1997, to review comments and status of NSA structural component plan (lowering and breaching of levees, flood proofing access roads, pumps and acquisition of LERRD’s). The FONSI was executed on July 25, 1997. The California Department of Water Resources is circulating the final EA for compliance with CEQ, to be completed by August 28, 1997.
SJ #18: The State Reclamation Board and SJRLD 1 have indicated, verbally, that the levee repair is unwarranted and a NSA is requested. The U.S. Army Corps of Engineers, Sacramento District will secure written confirmation in early August. The PIR was completed on July 18, 1997 (structural repairs are not economical, b/c ratio 0.40). The EA is under development and will be circulated for public comment early August 1997. The recommended plan is acquisition of flowage easements on 700 acres. The area is currently in an open space and used as pasture land. There are no threatened or damageable structures on or near this property.
NOTE: NRCS is continuing to evaluate the potential for a nonstructural alternative on the Cosumnes River. See ITF #39 NSA enclosure 2.
A formal ITF meeting held August 5, 1997, at the DFO, Mather Field, provided the agencies with updated information relative to the coordination efforts between the various agencies and the ITF. The GIS levee data base/mapping effort at the DFO is phasing down and the Sacramento District will provide maps on request to the other agencies. The ITF will coordinate all map requests from the other agencies with Sacramento District. USFWS is pursuing land acquisitions along the San Joaquin relative to the wildlife refuge expansion associated with RD 2100, RD 2102 and RD 2099. CALFED was not present. FEMA had no actions to report. NRCS was not present. SBA had nothing new to report. BOR has submitted there proposal to CALFED for use of Category III funding. Currently there is only $71 million budgeted and there are $620 million worth of submitted proposals. The California DWR and the Reclamation Board suggested to the ITF that for Category III, there is a need to change direction and avoid additional documentation by utilizing our resources. CALFED is currently working on the project study plan. In addition, on August 6, 1997, there was meeting with the U.S. Army Corps of Engineers and the California DWR to discuss Category III measures - ecological restoration and a review of the Lower Sacramento. After this meeting they will be able to move forward with an agreement. Furthermore, the Reclamation Board’s proposal for $10.4 million for funding the State’s portion of PL 84-99 activities has gone forward to the State of California, Governor Wilson for approval. The progress of RD 2124, which is a designated floodway, where a permit is needed will be addressed by the Reclamation Board in an upcoming Board meeting. The Sacramento District, U.S. Army Corps of Engineers briefed the ITF members on the four potential NSAs.
The Flood Plain Management Working Group of the ITF continues to work to guide future activities relative to flood plain management. The current workings of the Interagency Task Force’s Flood Plain Management Working Group, in coordination with the efforts of Governor Wilson’s Flood Plain Management Task Force and in conjunction with the Galloway Report, provides a framework on which to move forward on this issue. This will require coordinating the various authorities among agencies and the potential remedies to obtain reasonable compromises. This group would also seek legislation, at any governmental level to enhance the applicability of good flood plain management. To make prudent decisions the working group must develop an adequate baseline of information and knowledge. Admittedly we may never possess all the information we need to make decisions comfortably. Decades and decades of human activities within the flood plains and the fact that flood control works only protect to a specific event (say a one hundred year flood) have placed people and developed property at risk. Future decisions cannot be speculative but rather must be based on sound principles and guidelines. There must be alternatives to the current "status quo", challenging the use of structural solutions. Scientific methods can assist in this endeavor in order to achieve a balanced approach. Experience with floods provides that there must be an alternative approach in order to save lives and reduce property damages. Unless a steady and continuous effort is applied over the long term, nothing substantial will ever come to fruition.
The ITF staff at the DFO, Mather Field, continues to facilitate activities with the various Federal and State agencies. Over the last month, the ITF staff has facilitated meetings with the ITF membership relating to the working process of the NSA initiative, the GIS levee database effort, concerning issues with the Non-Government Organizations related to flood plain management activities. In addition, the ITF Staff actively participated in the outreach meeting in Marysville, California and multiple planning meetings for the above events. The ITF membership was again reminded of the need to be proactive in the non-structural alternative area and to review activities to date to be sure all avenues have been pursued. The overall active participation in the monthly ITF meetings by the Federal agencies has declined, while the State continues to participate. This ITF staff element will remain in place as long as the DFO is operational. The DFO is scheduled to close by September 1, 1997.
9. PROJECT REPORT INFORMATION: Since the July 6, 1997, Interagency Task Force monthly report there have been a total of 18 reports reviewed. These reports include 16 from the U.S. Army Corps of Engineers and 2 from NRCS. The U.S. Army Corps of Engineers has 2 for a non-structural alternative and NRCS has 1 under review for a potential NSA, and one being reviewed for repair. Fourteen of the U.S. Army Corps of Engineers projects will be restored to pre-flood condition. Final memorandums have gone out to the South Pacific Division on 16 project reports. The ITF is continuing the process of evaluating all projects for potential non-structural alternatives.
A total of 60 reports have been circulated to other members of the ITF for review and comment. These 60 reports include drafts and finals and reflect projects under FEMA, NRCS and Corps authority. There is approximately a 60% to 80 % participation rate from the active ITF membership for these reviews. Those agencies actively participating other than the U.S. Army Corps of Engineers are FEMA, BOR, BLM, FWS, NRCS, NMFS, CALFED and DWR. We have not received any comments from CALFED for this month. Enclosure 2 contains the comment sheets for each project. Enclosure 3 is a general summary status report.
motivated to participate in finding NSAs. The ITF’s process, now well developed, continues to depend on agency involvement to be successful. We are continuing to develop outreach programs to reach out further to the local citizens, landowners and the levee districts in an effort to promote NSAs. The outreach program discussed in Section 4 has been a success. The major gains in NSAs will come from the long range efforts and the ITF setting the stage through some successful NSAs, increased public knowledge, and helping establish a favorable mindset. The transition from the short-term to the long-term is being developed. Overall, the ITF process continues to be outstanding.
PAUL W. DOBIE
ESF#3/ITF CHAIRMAN
Disaster Field Office