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CHAPTER 10 REGIONAL COORDINATION OPPORTUNITIES AND 6‐Parish Region Population, POLICIES 2010

In a growing region comprised of three parishes Terrebonne 6% (Terrebonne, Lafourche, and Assumption) with a 15% 32% Lafourche combined population of nearly 232,000, 13% Assumption opportunities for regional cooperation to address St. John common problems are present. When this region is 27% St. James expanded on the basis of economic and other 7% considerations to include the River Parishes (St. John, St. Charles St. James, and St. Charles), the population base grows considerably (352,405), as do opportunities for All of these entities are members of a regional taking a regional approach to common concerns and organization, South Central Planning and problems. Development Commission (SCPDC), which provides

its members with a forum to discuss and build Tri‐Parish Population, consensus on approaches to common issues and concerns. It would appear, therefore, that SCPDC 2010 would be the most logical venue to continue focused Terrebonne Lafourche Assumption discussions pertaining to issues which may lend themselves to coordinated regional solutions. South 10% Central Planning and Development Commission 48% provides a number of services to its members under 42% five general headings. These include: building code enforcement; economic development; transportation planning; information technology; and planning and community services. More important Terrebonne accounts for nearly 32% of the than the services SCPDC provides to its members, is population of the 6‐parish region. It serves as a its ability to provide an appropriate forum for regional retail hub, as well as a major employment discussion among its members about common and medical services center, attracting people from concerns. nearby parishes. The tri‐parish area (Terrebonne, Lafourche, and Assumption) accounts for more than The Board of Commissioners of SCPDC meets publicly 65% of the population of the expanded, 6‐parish on a regular basis to handle items on its agenda. In a region. less formal, yet still public setting, the Board along with all member parishes and municipalities could Within this 6‐parish region are six incorporated meet first to agree on regional issues and concerns municipalities which have to deal with many of the to be more thoroughly discussed and then set up a same problems and issues impacting the entire framework to pursue resolution to these issues. For region. example, a committee comprised of SCPDC members (and other interested parties) could be appointed to look at each issue and, charged with a timeframe to

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report back to the Commission, develop all aspects an expanded base, a more efficient and better of the problem along with potential solutions from a service for the customer/user, and possibly, a better regional perspective. quality of life.

A regional perspective is important because many In dealing with planning issues, local jurisdictions quality of life and planning issues transcend tend to act in what they perceive to be their own individual jurisdictional boundaries. While most best interest. Often lost sight of is how local regions are fragmented into multiple local decisions fit into the regional picture or affect other jurisdictions including parishes, cities, towns and communities. Around the country, efforts to plan other municipalities, many of which have their own regionally fall into four broad categories. local planning autonomy, there are many issues that can only be effectively addressed regionally. For REGIONAL PLANNING MECHANISMS example, air quality, traffic, storm water management, water quality, drainage and natural Regional Government environmental systems recognize no man‐made Regional Planning Agencies political boundaries. Specialized Functional Agencies Many of the local issues which might lend “Ad Hoc” Regional Organizations themselves to regional solutions are similar to those

faced by other jurisdictions elsewhere. For example,  Regional Government. There are a number of drinking water source and treatment, wastewater instances around the country where cities treatment, solid waste disposal, environmental and counties have consolidated to create a issues (air and water quality, as mentioned above), unified, multi‐jurisdictional approach to and regional transit are issues that are being governance, including planning. For example, considered on a regional basis in many parts of the Lexington‐Fayette County (Kentucky), state. Locally, hurricane evacuation needs transcend Indianapolis‐Marion County (Indiana), and parish boundaries, particularly in coastal Louisiana. Nashville‐Davidson County (Tennessee) are Although Terrebonne may wish to study these issues examples of city/county consolidations which from its perspective—and it should—the opportunity have enabled these areas to approach exists is look for solutions and enhanced cooperation planning issues from a more regional on a regional basis. Terrebonne is impacted by air perspective. Of course, this assumes that and water quality issues not necessarily of its own regions can be equated with counties (or making. On the other hand, because it is a major parishes), which is not necessarily true. retail/shopping and employment hub for the region,

the traffic and transportation issues these raise  Regional Planning Agencies. There is a wide impact surrounding parishes. The point is that issues range of multi‐purpose, multi‐jurisdictional or problems, despite attempts to deal with them regional planning agencies. In many places locally, can cross jurisdictional boundaries, causing they are called regional councils of that jurisdiction to attempt to find solutions to government, in others, regional planning (or problems not of its making. planning and development) commissions.

Typically, these bodies act in an advisory Regional solutions hold the promise of economies of capacity and do not have land use decision‐ scale, cheaper and/or more stable user fees due to

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making authority. Regional planning agencies Some of these organizations could play a role in are usually comprised of members appointed developing solutions to regional concerns in this by their respective local governing bodies, area. and are supported by a mix of technical and citizen committees and by staff. Some The purpose of this section of the Comprehensive function as the official Metropolitan Planning Plan Update is to suggest areas where a regional Organizations (MPO) with responsibility for approach to problem solving, an approach which transportation planning for their respective requires regional cooperation, will produce benefits regions. Locally, South Central Planning and which accrue to all. But, this section is not intended Development Commission is the officially to “solve” the identified regional concerns and designated MPO for that part of the region issues. It will merely identify some areas that are ripe which falls within the urbanized area. for discussion in a regional context and attempt to flesh out some of the issues associated with these  Specialized Functional Agencies. There are areas and concerns which should be part of the many regional agencies that have functional discussion. responsibilities related to specific aspects of regional planning and development. Most REGIONAL ISSUES AND AREAS OF CONCERN frequently, these agencies deal with regional infrastructure, such as highways, parks and  AIR QUALITY open space, sanitary sewers, storm water  WATER QUALITY management, and water systems. For  WASTEWATER TREATMENT example, the East Bay Regional Park District (covering the east side of San Francisco Bay)  POTABLE WATER and the Metropolitan Sewer District in  SOLID WASTE DISPOSAL Cincinnati respectively provide park and  REGIONAL TRANSIT sewer planning on a regional basis. In this  HURRICANE EVACUATION region, the Bayou Lafourche Fresh Water  DRAINAGE District could be considered a specialized  PLANNING AND GROWTH functional agency with a regional mission.

1. Air Quality  "Ad Hoc" Regional Organizations. A growing

number of regional initiatives have occurred This issue has been discussed elsewhere in this through a diverse mix of public, quasi‐public, document. There is little doubt, however, that air and private organizations led by individuals or quality as it relates to Terrebonne is a groups seeking to fill what they perceive to be sustainability issue. It is, also, a regional issue gaps in government‐led efforts. Some of given the way air quality is monitored locally— these organizations focus primarily on the monitoring station is located in Lafourche growth, housing, and economic development Parish—and the manner in which the Louisiana issues, while others are oriented towards Department of Environmental Quality has natural resource and quality of life issues. defined the region. If the monitoring station in

Lafourche Parish shows that the ozone level in our air is below the established standard, then all

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parishes in this region, not just Lafourche, are status for ozone fall below marginal non‐ deemed to fall into the non‐attainment status for attainment, additional requirements will be ozone. Should this happen, and it could when the imposed. It would be wise, therefore, to have at new ozone standard is promulgated by the least discussed the possibility of ozone non‐ Environmental Protection Agency, all parishes in attainment status for the region and develop a the region would have to take steps to lower plan to tackle the problem on a regional basis. ozone levels within the allotted timeframe, or This plan would include budgets, timelines, and face some challenging alternatives. Depending on actions steps, and develop a public how far below the standard the region falls, the outreach/educational effort since citizens could actions to be taken to get back into conformity be impacted directly by these requirements. could include a combination of the following, all Since a great deal of the efforts to reduce ozone of which are discussed in greater detail in the is focused on transportation‐related areas, the Environmental chapter. best setting to begin the discussion, with Terrebonne’s insistence, leadership, and active EXPECTED REQUIREMENTS FOR MARGINAL participation, is South Central Planning and OZONE NON‐ATTAINMENT STATUS Development Commission.

Emissions inventory 2. Water Quality VOC/NOx reductions by 100TPY Terrebonne Parish and the other parishes in the New Source Review region have approved by resolution the Conformity determination Comprehensive Conservation and Management Plan (CCMP) produced under the auspices of the Expected Requirements for Marginal Ozone Barataria‐Terrebonne National Estuary Program Non‐Attainment (BTNEP) in 1996. This plan was driven by requirements of Section 320 of the Clean Water 1. Emissions inventory to identify sources Act (CWA). The National Estuary Program (NEP), and quantities for Volatile Organic under which BTNEP functions, was created by Compounds (VOC) and/or Nitrous Oxide Congress through Section 320 of CWA in 1987. (NOx) in tons per year (TPY). This program is administered by U.S. 2. Imposition of methods to reduce either Environmental Protection Agency (EPA). VOC/NOx from major sources by 100TPY 3. Introduction of New Source Review (see The goal of National Estuary Program is the text of Environmental section for more prevention of activities that: details) 4. Conformity determination, which could 1) threaten the estuary’s public water limit the region’s ability to build or expand supply; highway capacity. 2) are harmful to shellfish, fish, and wildlife populations, and, All of these requirements will necessitate the 3) negatively impact recreational parishes in the region taking action, such as opportunities for estuary residents. voluntary measures and Ozone Action Day measures, to reduce ozone. Should the regional

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NATIONAL ESTUARY PROGRAM GOAL 3. Wastewater Treatment Prevent activities that: Threaten public water supply How wastewater is treated (or not treated in Harm aquatic species and wildlife some cases) has a direct impact on the region’s Adversely impact recreational opportunities clean water, as discussed above. In addition, untreated or partially treated effluent can These are objectives with regional impact. In infiltrate into surface water during flooding addition, all of these objectives address the conditions, for example, and the contaminated region’s long‐term sustainability. water can sheet flow across parish lines, or find its way into streams which cross parish lines. The CCMP is meant to serve as guidance for the Under these conditions, standing water in preservation and restoration efforts throughout roadside ditches is contaminated with effluent the Barataria‐Terrebonne estuary. In the CCMP's and such contamination in streams and bayous Action Plan, Ecological Management (EM) as it contributes to the impairment of water bodies in pertains to Water Quality is one of the plan's our region. The elimination or least the reduction stated objectives. At least three of the actions of sewage pollution is one of the three actions in under this objective are directly relevant to the BTNEP’s Comprehensive Conservation and sustainability of Terrebonne and the region, as Management Plan designed to improve overall well as its waterways and estuarine system. water quality in the region for drinking, for These actions are the reduction of sewage support of wildlife, fish, and shellfish, and for pollution, the reduction of agricultural pollution, recreational purposes. and storm water management. There may be opportunities to provide These actions are designed to improve water community sewerage across parish or municipal quality in the region and, as such, are directly boundaries at least at the edges where such related to the region's long‐term sustainability. infrastructure does not currently exist. For example, it may be possible to connect areas of Terrebonne Parish should renew its commitment north Terrebonne Parish to the community to work and become an active partner with sewage treatment capabilities in the City of BTNEP (an “ad hoc” regional agency) and the Thibodaux in Lafourche Parish. These options other parishes in the region (in the Barataria‐ should be explored and Terrebonne Parish could Terrebonne estuary system) to attain the goals take a leading role in this. Logically, South Central and objectives which may not yet be attained, or, Planning and Development Commission would be to develop new goals and objectives in keeping the agency to facilitate these discussions which with the overall objectives of the CCMP and would explore feasibility from all aspects Section 320 of the Clean Water Act. Clean including financial considerations. The region and drinking water, healthy fish and wildlife its overall water quality would be better served populations, and first‐class recreational by fewer individual and community package opportunities are of primary importance for sewage treatment plants and an expanded regional sustainability and economic regional wastewater treatment system. development.

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4. Potable Water undertakes improvements to this water body to ensure its sustainability and the quality of its This area is already taking on regional significance water. Member parishes tax themselves through as the discussion around Terrebonne’s possible a property tax millage dedicated to the election to join the Bayou Lafourche Fresh Water operations of the District and pay a fixed rate for District (BLFWD) intensifies. All or parts of four water usage which can only be raised by approval parishes (West Ascension, Assumption, of the Board of Commissioners of the District. Lafourche, and Terrebonne) currently draw fresh Currently, Terrebonne is not a member of the raw water from Bayou Lafourche. In BLFWD and has no seat on the District’s Terrebonne’s case, most of its raw water supply governing board. Consequently, Terrebonne has is drawn indirectly from Bayou Lafourche through no say in the policies and decisions of this board the Lafort Canal, but the source is Bayou at this time, although state enabling legislation Lafourche under a 40‐year agreement with has been passed to allow Terrebonne to join the BLFWD which expires in 2014. The other raw BLFWD and have seats on its governing board. water source currently available to Terrebonne Since this probably hinges around a discussion of Parish is the Gulf Intracoastal Waterway (GIWW), the costs involved for the water uses in and Bayou Black when salinity levels in the GIWW Terrebonne Parish, TPCG in conjunction with exceed 250 ppm. Unfortunately, this salinity level Consolidated Waterworks District No. 1 should is not an uncommon occurrence in the GIWW take the lead in bringing other interested parties and the Bayou Black alternate source is to the table to thoroughly discuss the issues, and acceptable, but not preferable. The ultimate propose the matter to the voters of the parish, if issue for Terrebonne, therefore, is not whether it it so decides. will continue to draw most of its drinking water from Bayou Lafourche after 2014, but how much 5. Solid Waste Disposal Terrebonne Parish consumers will ultimately pay for drinking water. Currently, there are no landfills in Terrebonne parish receiving solid waste. Green waste and other recyclables are received at the landfill, but solid waste is picked up curbside and brought to a parish‐operated transfer facility at the Ashland landfill site. From there, solid waste is trucked to a landfill facility (River Birch) on the west back of St. Charles Parish near the Jefferson Parish line.

Most of the parishes in the region are in this same situation relative to solid waste disposal. For this reason, there are opportunities to come together to determine the practicality and The condition and health of Bayou Lafourche is of feasibility of establishing a consolidated contract great concern, obviously, to Terrebonne Parish with not only the garbage haulers, but with the and its residents, as well as all the other parishes regional landfill itself. The result could be lower which are members of the Bayou Lafourche Fresh costs for the consumers in each of the Water District. For this reason, the BLFWD participating parishes.

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To that end, some type of regional solid waste Parish, for example, to travel via transit to authority was established several years ago. Houma‐Terrebonne, or NSU, or to metro New However, little progress has been made in Orleans, and back. defining and pursuing regional goals relative to solid waste disposal, both in Transportation and transit in particular, is an transportation/hauling contracts and tipping fees important element of affordable housing and an at the landfill site. At one time, the potential affordable housing strategy. In order to achieve a existed to develop another regional landfill in truly affordable housing objective, Assumption Parish. Although the site held transportation, housing, and employment promise and planning actually progressed to the opportunities/centers must work together to permitting phase, local opposition was sufficient support each other. These elements form a triad to stop the project indefinitely. which can contribute greatly to housing affordability. A regional transit system will play South Central Planning and Development an important role in this strategy. Commission could take the lead in bringing all the regional governments and municipalities with 7. Hurricane Evacuation either escalating solid waste costs or other solid waste disposal problems to the table for Adequate and all‐weather roads and highways meaningful discussion about these problems. for hurricane evacuation are a necessity for Terrebonne, as the parish with the region’s Terrebonne Parish, indeed for all of coastal largest population, has a very good reason to Louisiana. For Terrebonne, hurricane evacuation work with SCPDC to find lower cost options for is a need with regional impacts and, therefore, solid waste disposal and transport which can be should be handled on a regional basis. Possibly, implemented at some point in the future. SCPDC could be the agency responsible for coordination, but with Terrebonne’s leadership 6. Regional Transit and active participation. The stream of evacuating traffic will most definitely cross parish With Terrebonne’s Good Earth Transit system lines. In some ways, this is a “super” regional extending to Nicholls State University (NSU) in issue requiring a great deal of cooperation and Thibodaux, and now expanded via a downtown planning at the state agency level. loop, and the River Parishes Transit System fully operational, most of the elements for a regional Although state agencies have been involved in transit system are now in place. With these planning for hurricane evacuation locally, via U.S. systems in operation now, an opportunity exists 90 for example, more needs to be done in terms to link together a regional system allowing travel of the infrastructure of hurricane evacuation by public transportation from Terrebonne to routes. Unless Terrebonne residents leave metro New Orleans and back. Obviously, such a several days in advance of the storm’s immediate system will require considerable study, but a approach, U.S 90 and the local state roads which great deal of the structure is already in place, not lead to it and which funnel bayou community only in this region, but in Jefferson and Orleans residents to it, soon become clogged with traffic. Parishes as well. What is needed is a mechanism While U.S. 90 eventually turns in a northerly to interface all adjacent transit systems at their direction in St. Mary Parish, it is within 30 miles edges in order to allow someone in St. James of the Vermilion Bay and the Gulf of Mexico—and

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still vulnerable to storms—when it reaches The Western Alignment Begins at the U.S. 90/LA Lafayette, LA. With heavy traffic flowing west 311 intersection and bypasses most of the City of from parishes to the east of Terrebonne and Thibodaux to the west, eventually connecting to possibly from metro New Orleans, depending on LA 20 north of Thibodaux and south of Chackbay. the storm’s track, last minute evacuation from This alignment is longer than the Eastern Terrebonne Parish is extremely difficult. Alignment, but its environmental issues and impacts are less. What Terrebonne needs is a good north‐south hurricane evacuation route and such a route has Terrebonne Parish, in conjunction with SCPDC, been in the planning stages for several years should push to have the EIS completed and an now. It is referred to as the Houma‐Thibodaux to alignment selected to that this needed and LA 3127 Connection EIS Project (SPN 700‐99‐ important roadway project can proceed. 0302; FAP No. HP‐9902(518)). However, the Terrebonne Parish and the region must have a completion of this roadway has been seriously viable alternative for hurricane evacuation. This delayed by environmental and other concerns roadway project is the answer. which are not necessarily in the best interests of the people living in this region. The completion of 8. Drainage this route, regardless of the alignment, will allow faster access to U.S. 61 for evacuation north, and Storm water runoff generally flows from the to I‐10 for evacuation to the west (or east, as the highest elevations to the lowest if it is not case may be) for connections to other high speed impeded in some manner. As an example, the highway facilities leading north. Mississippi River collects water from a vast area of the United States, and this river flows to the The EIS is studying a number of alignments, all Gulf of Mexico. On a somewhat smaller scale, the with beginning points at U.S. 90 in Terrebonne same thing happens with the Atchafalaya River. Parish and ending at the LA 3127/LA 3212 While the bayous and drainage facilities in intersection in St. John the Baptist Parish. LA Terrebonne Parish handle storm water runoff 3212 provides direct access to the Gramercy‐ generated locally, these systems, generally Wallace Bridge over the Mississippi River, and speaking, are not “closed.” once across, to U.S. 61 and I‐10. Once I‐10 is reached, access to I‐55 North is facilitated. The Eastern Alignment begins near the U.S. 90/LA 316 intersection in Terrebonne Parish and, after bypassing Thibodaux, reconnects with LA 20 between Chackbay and South Vacherie. This alignment may be the least complicated of the alignments studied and the shortest, most direct route. However, it may also impose the most severe environmental concerns.

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This means that storm water runoff from areas parishes. This could help highlight commonalities, outside the parish can enter drainage systems in both problems and strengths, and suggest Terrebonne and cause local canals, pumps, and avenues to explore that could lead to solutions bayous to handle higher loads and greater stress for common problems and enhancement of during these periods. mutual strengths. In addition, such regional cooperation could lead to the development of Although the source of “leakages” which add regional plans for the commonalities identified, runoff to local drainage systems may not causing each governing authority to adopt and apparent, there is at least anecdotal information pursue policies of mutual benefit. Through such a suggesting that there are leakages nevertheless. mechanism the region grows stronger, working During such conditions, local pump stations may together to pursue common goals. be in operation when the conditions that would cause them to operate are not present in Terrebonne Parish. The water is coming from somewhere, however.

Parish government should carefully document such events and attempt to correlate them with local and regional weather conditions. If such correlation is found to exist and it can be documented that storm water runoff from outside Terrebonne is the cause for local pump station operations, then discussions should be initiated with drainage officials in adjacent parishes. South Central Planning and Development Commission could serve as a forum for a regional discussion of this nature. However, in this case, direct department‐to‐department discussions may be just as effective.

9. Planning and Growth

As the region grows, planning will become more important to the parishes in this region. As more parishes adopt comprehensive plans, it would be beneficial for the respective planning directors to meet periodically with decision‐makers from these parishes to share and discuss their various planning documents. These periodic meetings would serve multiple purposes. First, beyond the obvious social and professional benefits, it would give each planning director an awareness of comprehensive plans adopted in adjacent