A California Challenge—Flooding in the Central Valley October 15, 2007

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A California Challenge—Flooding in the Central Valley October 15, 2007 A Report from an Independent Review Panel to the Department of Water Resources, State of California October 15, 2007 09164 | LD 07 Cover image note: the image showing floodwaters surrounding the Arco Arena in Sacramento, California on the cover of this document has been edited and is not authentic. It was made to illustrate the depth of flooding predicted if that area of Sacramento were to experience levee failure or overtopping and thus be subjected to deep flooding. Used by permission from the California Department of Water Resources. A California Challenge— Flooding in the Central Valley A Report to the Department of Water Resources, State of California Independent Review Panel Dr. Gerald E. Galloway Jr., PE, University of Maryland, Chair Dr. John J. Boland, PE, Johns Hopkins University Dr. Raymond J. Burby, FAICP, University of North Carolina at Chapel Hill Christopher B. Groves, PE, Shannon & Wilson Inc., St. Louis, MO Susan Lien Longville, Water Resources Institute, California State University, San Bernardino Dr. Lewis E. Link, Jr., University of Maryland Dr. Jeffrey F. Mount, University of California, Davis Dr. Jeff Opperman, The Nature Conservancy Dr. Raymond B. Seed, University of California, Berkeley George L. Sills, PE, U.S. Army Engineer Research and Development Center James J. Smyth, PE, Smyth Water Planning Solutions, Raleigh, NC Ronald Stork, Friends of the River, Sacramento, CA Edward A. Thomas, Esq., Association of State Floodplain Managers Consultants to the Panel Joseph D. Countryman, PE, MBK Engineers, Sacramento, CA Peter C. Wijsman, MSC, The Netherlands Water Partnership, Rotterdam, Netherlands Panel Associates Larry Larson, PE, CFM, Association of state Floodplain Managers1 Doug Plasencia, PE, CFM, Association of State Floodplain Managers1 Piet T.M. Dircke Msc, University of Rotterdam2 PBS&J—Technical Support: Jennifer Marcy, CFM, Senior Scientist Michael DePue, PE, CFM, D. WRE, Senior Program Manager William Hinsley, Associate Vice President, Senior Project Director October 15, 2007 1Mr. Plasencia and Mr. Larson assisted Mr. Thomas in this endeavor. 2Mr. Dircke assisted Mr. Wijsman in this endeavor. i Acknowledgements The Panel would like to express its appreciation to the staffs of the California Department of Water Resources, the U.S. Army Corps of Engineers, the U.S. Federal Emergency Management Agency, and the U.S. Geological Survey for their assistance in locating and providing data to support this report and to the members of the California Floodplain Management Task Force, who in 2002, developed a forward-looking framework for dealing with floods in California. The Panel would also like to acknowledge the excellent support of the Sacramento office of PBS&J, and the editorial assistance of Lillian L. McAnally, Senior Technical Editor, and Gary Guhl, PE, PBS&J. ii Meeting the Challenge: An Executive Summary California’s Central Valley faces significant flood risks.3 Many The current flood experts feel that the Central Valley is the next big disaster waiting control system of to happen. This fast-growing region in the country’s most populous the Central Valley state, the Central Valley encompasses the floodplains of two major rivers—the Sacramento and the San Joaquin—as well as additional is incapable of rivers and tributaries that drain the Sierra Nevada mountains. dealing with the Expanding urban centers lie in floodplains where flooding could threat of severe result in extensive loss of life and billions in damages. Recent flood events, inspections have raised serious questions as to the integrity of placing its urban many levees that protect communities and property in the Central centers at Valley. Conservative estimates of potential direct flood damages in the Sacramento area alone exceed $25 billion. In some areas of considerable risk the Central Valley, communities would experience flood depths of while incurring twenty feet or more when the levees fail. A flood of such magnitude significant and depth not only poses a serious risk to public health and safety environmental but it would cripple the state’s economy, and the consequences of costs. such an event would have far-reaching and long-term effects on the nation as well. To deal with the challenge of managing Central Valley flooding, over the past 150 years, the federal government, in cooperation with the State, has constructed a system of levees, backed by dams, floodways, and flood channels, designed to control flooding on both urban and rural landscapes. Unfortunately, this aging flood- control system provides only limited protection. Many of the system’s levees were poorly built or placed on top of inadequate foundations; others have been inadequately or intermittently maintained. In addition, efforts to protect the Central Valley from flooding have also significantly degraded the natural and beneficial functions of the rivers and their floodplains, threatening the loss of species, destroying habitat, and failing to take advantage of the 3 There are two sides to this risk: the probability of flooding, and the consequences that would follow. An area could have a high probability of flooding but minimal consequences because the area subject to flooding is forested and contains no infrastructure or people, so the risk is low. Conversely, a highly urbanized community that has a moderate or low probability of flooding would be considered high risk, because the consequences of a flood in that location (loss of life, livelihood, property, health and human suffering) would be very high. We manage the probability side of risk with levees and other structures to control flooding. We manage the consequences side by making land-use decisions that keep infrastructure out of harm’s way, or by reducing the consequences to existing infrastructure using a multitude of floodplain management methods. iii The Panel floodplain’s natural capacity to store flood waters and to recharge recommends that aquifers below them. The current flood control system of the Central Valley is incapable of dealing with the threat of severe flood California officials events, placing its urban centers at considerable risk while incurring at the state and significant environmental costs. local levels While there is great concern for the current condition of the Central develop and Valley flood control system, the outlook for the future under rapidly act on a business-as-usual is grim. Climate change may be increasing the comprehensive magnitude and frequency of large storms; new understanding of approach to flood- threats, such as those caused by seismicity are emerging; risk reduction that communities aggressively promote new development on the floodplains; and the flood control infrastructure continues to age. includes The magnitude of the risk to the Central Valley, to California, and to integration with the nation appears to grow for the foreseeable future. other basin water This paper was prepared at the request of the Department of Water management Resources by an independent Panel of flood and floodplain activities and, of management experts from across the nation to provide insights and great importance, recommendations on how California should deal with the special with land-use circumstances of deep floodplains in the Central Valley4 (see Panel planning. biographies in Appendix A). The Panel believes that California state and local governments, with support of relevant federal programs, must develop and rapidly act on a comprehensive approach to flood risk reduction in the Sacramento and San Joaquin Basins, integrating this effort with other basin water management activities and, of great importance, with land-use planning. It is this latter element—land-use planning that connects local land use decision-making with regional flood management—that is critical to reducing future flood risk in the Central Valley. Levees and other flood damage reduction structures only reduce the dangers of flooding; they do not eliminate them. Indeed, the most extreme and dangerous events are those that are not eliminated. As the state and nation have learned in the last two decades, levees can fail and when they fail, the failure brings catastrophic consequences to those who depend upon them for flood protection. The challenge then is for California to provide comprehensive protection to those now living behind levees, manage risk by mitigating adverse consequences when flooding occurs, and restrict future development in hazardous areas. This will require the state to take the steps necessary to ensure that the 4 The Panel defines deep floodplains as floodplains where the level of flooding is three feet or higher. In deep floodplains, the ability to evacuate is limited or non-existent, creating significant life-safety threats and the damage to property is extensive. iv flood damage reduction system that it puts into place provides a The Level of level of protection to those already behind levees that is Protection for commensurate with the consequences of failure or overtopping. California also has to take steps, through General Plans, zoning urban areas codes, building codes, floodproofing, and evacuation planning, to should be minimize flood damages and mitigate losses when they occur.5 The equivalent to state must also take action to restrict development in high-hazard protection against areas where current population densities are low. Additional the Standard development in these areas will simply put more people at risk and Project Flood. create an ever-escalating demand
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