The city itself, through its city council, has backed the Port Authority completely in its endeavor to have a flood wall built to protect our people. I sincerely hope that the Congress of the United States can include this project in this fiscal year. Very truly yours, JOSEPH E. DILLON, Mayor. ST. PAUL-SOUTH ST. PAUL, MINN., FLOOD CONTROL PROJECT Mr. Chairman, members of the committee, we appear before you this morning to speak briefly on the combined St. Paul-South St. Paul flood control project. We should like to give a short summary of the flooding and damages in the area and a summary of the legislative and administrative history of this project from the local governing bodies, the Corps of Engineers, and the U.S. Congress. We hope in this manner to present a graphic picture of the human suffering and misery occasioned by the floods and also the economic loss our area has suffered from the floods of the past century, but more particularly, the past decade. Generally, the floods in our area occur on the Mississippi River in the St. PaulSouth St. Paul area in the spring. They are caused primarily by the rapid melting of the heavy snowfall we normally have in Minnesota every year. Flood records of river stages in St. Paul have been maintained since 1867, and in these 93 years this area has suffered 12 flood disasters when the waters reached a reading of 16 feet or 2 feet above flood stage. The following table shows more graphically the years all floods occurred since 1867 together with peak flood stage and duration above this flood stage. TABLE I. Greatest heights reached in each year over flood stage of 14 feet Flood frequency data developed by the Corps of Engineers indicates that the Mississippi River can be expected to reach or exceed flood stage at St. Paul-South St. Paul on an average of once every 4 years. Although this same data indicates that another devastating flood may not occur for some time, the record shows that we have had three floods in the past 9 years. We think it is important to note that the past decade is the first one of the past four to have reasonable normal precipitation. We feel that the decrease in the watershed areas available for natural water storage has contributed to the seriousness of this situation. This condition has been and will continue to be aggravated because of the deforestation. ditching, highway construction and other construction in the natural drainage area. We further feel that having had three bad floods in the past 9 years, we could and may very well have floods in the future more often than before and far more serious ones. The meteorological records of the area indicate that we are now in a "wet cycle" or a series of flood years. It is not our intention to disagree with the cost-benefit ratio allocated to this project. We fully realize that we must abide by the rules, formula, and criteria established by the Corps of Engineers which are uniform throughout the country. However, in the 1950's, three floods occurred that caused direct damages of $12,800,000 based on 1959 price levels. The 1951 flood was 4 feet 91⁄2 inches over flood stage. The 1952 flood was 8 feet over flood stage, and the 1957 flood was 2 feet 1 inch over the 14-foot mark. It is repetition of the floods of the 1950 decade, as well as the project design flood, that is to be guarded against by the construction of the proposed floodwall and levee. There are no statistics that can prove when the design flood will occur or when it will not occur. The statistics only show that it will occur in some year and that it will cause $232 million worth of direct damages in that year. That is the damage that must be avoided, as well as the $12 million of direct damages that occurred in the 1950 decade. These figures are to be compared with the yearly average of flood control benefits given by the Corps of Engineers multiplied by the 50 years used in their criteria, which results in their estimate of $14,130,000 of damages over the next 50 years. Their figure is low as they are required to include the 30 years of drought in obtaining their average. Also, the very considerable indirect damages caused by the floods are not subject to consideration by the Corps of Engineers, as we understand it. These damages concern the owners and marketers of livestock in 22 States, as well as commerce and industry locally that is not flooded out, but that fails to receive the business they anticipate, due to nonpayment of regular wages to the employees of the industries that are flooded out. The operations of over 200 employers, and the income to over 14,000 employers in the flood-ravished areas of the two communities come to an end, not only during the flood stage, but also during the drying out and cleanup period, the total of which runs from 6 to 8 weeks. Extent of damages is more than just an economic loss. It should and does include the health and welfare of the people who live in the flooded areas. Although there is no yardstick by which we can properly measure the grief and suffering of the some 6,000 residents of the flooded area of St. Paul who were forced to move three times during the 1950's, we hope the photographs and articles we have on exhibit before you and which were reported in our local newspapers, will adequately reflect the human heartache connected with each of these floods. These people are not concerned with the 97-year average annual flowage record, which, on account of the 30 years of drought, produces a level of water that will not disturb their homes. They are concerned with flowages that reach flood stage. At that time they have to be moved, frequently in boats, to temporary quarters. This has occurred three times in the 1950 decade. Flood losses are deductible by taxpayers, both individual and corporate, and the indirect losses show up as reduced incomes over a wide area. These lowered taxable incomes result in reduced taxes to both Federal and States as well as vitally affecting the unemployment compensation fund. Although we are not completely familiar with the details of the criteria applied by the U.S. Army Corps of Engineers to this project, we feel that these factors as outlined above should be taken into full consideration in your deliberations. In the files of the Port Authority of the City of St. Paul are many current letters from industries located within the area to be protected by the floodwall. We should like to quote a portion of one of these letters. **** if a flood though several feet under that great flood of 1952 occurred, it would spell death to our physical properties. Consequently, it would take this writer but 5 minutes to decide to move his business to another location high and dry from the Mississippi River and far removed from the city of St. Paul." "WALTER F. VILLAUME, "President, Minnesota Macaroni Co., St. Paul, Minn.” The attached two letters are typical and they have been reproduced to illustrate the economic losses we have been suffering and will continue to experience without the floodwall protection requested. See exhibits I and II. The existing levee at South St. Paul previously constructed on the west bank of the Mississippi River proved inadequate to halt modern floods. The Corps of Engineers proposes to raise this levee 3 feet. In this area proposed to be protected are industrial and commercial developments. These vary from small retail establishments with few employees to nationally known plants employing thousands. The most important develop ments located in the area recommended to be protected include steel fabrication paint, fertilizer, meat processing, and box manufacturing plants; petroleum coal, and grain storage facilities: steampowered generating facilities; railroa repair shops; and stockyards. The mainlines of nine major railway system: including three with their western terminus on the west coast of the Unite States, are routed into or through the St. Paul-South St. Paul area. In addi tion, several Federal highways and an extensive system of State and local high ways traverse this area. On Sunday morning, April 15, 1951, the industrial area of South St. Pau contiguous to the Mississippi River was flooded, suspending all local opera tions of Armour & Co., Morris Rifkin & Sons, St. Paul Union Stockyards Co Swift & Co., as well as adversely affecting many related businesses. More tha 20 million gallons of water were pumped daily from the premises of the S Paul Union Stockyards Co. for nearly 2 weeks. After the 1951 flood, which broke through the then existing protection system improvements were made that year to the levee to the extent of approximatel $1 million. Had it not been for this reinforcement of the local flood protection system and the heroic work done under terrific pressure by many, the 195 flood would have been catastrophic to the area. As it was, the damage cause by the 1951-52 floods in the South St. Paul area approximated $8 million (adjusted to 1959 price levels) in just those 2 years. The survey made by the Corps of Engineers shows that the Mississippi Rive could reach the project design flood of 25.7 feet at St. Paul, just 3.7 feet highe than the 1952 record. Such a flood, the study shows, could cause damage o approximately $23,500,000 in St. Paul and South St. Paul. As the distric engineer, Corps of Engineers, stated in his report dated March 23, 1956: "The occurrence of two major floods in successive years, 1951 and 1952, or the upper Mississippi River has clearly demonstrated the need for flood pro tection in the flood plain of the St. Paul-South St. Paul area No. 223, 85th Cong., 1st sess., p. 29, par. 71). (H. Doc We believe that the recommended protection of the industrial area of South St. Paul is necesssary, not only for the immediate benefit of that community, but also for the economic welfare of the entire Northwest. We invite your attention to the fact that the South St. Paul livestock market is the second largest livestock market in the Nation. A total of approximately 5 million head of livestock was received for sale in 1959 from 15 States and Canada, with shipments being made to 22 States. Livestock feeders and farmers of the Northwest realized at our South St. Paul livestock market more than $550 million in 1959. At least in Minnesota, the largest source of agricultural income is derived from livestock. So it may readily be recognized that the agricultural economy of Minnesota, to a large extent, is dependent upon this market and neighboring meatpacking plants. Improved flood protection is absolutely necessary for the survival of the South St. Paul terminal livestock market and the meatpacking plants. Approximately 10,000 persons of the community are directly employed in the livestock industry. May we respectfully draw your attention to the legislative and administrative actions that have already been taken on this project since May 1952. See attached exhibit III. May we specifically call to your attention the dates of: Between 1952 and 1956: Appropriations by Chief of Engineers, Army Corps of Engineers, for preauthorization studies in the amounts of $40,000 for St. Paul, $37.000 for South St. Paul. July 3, 1958: Rivers and Harbors Act of 1958, Public Law 85-500: The projects for flood protection on the Mississippi River at St. Paul and South St. Paul, Minn., are hereby authorized substantially in accordance with the recommendations of the Chief of Engineers in House Document No. 223, 85th Congress, 1st session, at an estimated cost of $5,705,500. September 2, 1958: Public Law 85-863: Appropriation by Congress for the sum of $200.000 for planning studies for flood control of the Mississippi River at St. Paul and South St. Paul. September 10, 1959: Public Law 86-254: Further appropriation by Congress of the sum of $159,000 for planning studies and preparation of bids for flood control of the Mississippi River at St. Paul and South St. Paul, Minn. A total of $436,000 has already been appropriated for this project. Based on the actions cited above, it would seem a logical conclusion to us that the Federal Government agrees with us that this flood control measure is a worthy one. The total project cost is estimated at $8,126,900 (U.S. Corps of Engineers, 1959), with $7,169,200 allocated as Federal first costs and $957,700 allocated as non-Federal first costs. The detailed estimated costs are shown on exhibit IV attached. The present program timetable as outlined by the U.S. Army Corps of Engineers provides for inviting bids in July 1960. The opening of bids and award of contract based upon this schedule would be made in August 1960. Completion of the project is anticipated in June 1962. The need for conserving, protecting, and developing this area in the heart of St. Paul becomes very apparent when considered in the light of the economic and population growth forecase for this upper midwest industrial center. In our urban areas it is essential that all property be developed for its highest and best use. The area to be protected by the flood protection works will also be a part of an industrial area, and a port development center located in the heart of the city of St. Paul. With the approval of this flood control project you will be protecting against industrial. human, and economic losses. The proper development of the largest terminus on the upper Mississippi River system requires the use of these lowland areas. May we call to your attention the importance of the city of St. Paul as reflected in the commercial and industrial activity on the upper Mississippi River since the establishment of the 9 foot channel 20 years ago. This is revealed when you examine the tonnage reports and the statement of barge traffic in tons, recorded and published by the U.S. Army Engineers district, St. Paul, Minn. In these figures, reported as of 1959, they show that approximately 50 percent of all tonnage in and out of this reach of the system is handled in the port of the city of St. Paul. The need for new land areas to serve warehouses and industries using the waterway system, as well as those who want to take advantage of the nine railroads serving this area, the Interstate Freeway and Holman Airport can be met with the proper development of public projects such as the flood-protection measure under consideration. The key to all of this, the relief of human suffering, the loss of jobs, proper use of land, is the flood protection here under consideration. CONCLUSION Gentlemen, we present this statement to you for the purpose of pleading for support for the St. Paul-South St. Paul flood control project. We sincerely hope that you agree with us as to the worth and merit of this measure and that you will include the $500,000 necessary to initiate construction of this project in your appropriations for this coming fiscal year. The city of St. Paul is prepared to do its part in the development of this area. Since 1957, legislative authorization for the issuance of bonds to cover funds required as a part of our local participation has been and still is available. If Federal funds are appropriated, we will then be on our way to alleviate human misery and economic losses which our communities have suffered through the years from these disastrous floods. EXHIBIT I MINNESOTA FARM BUREAU, Subject: Flood protection from Mississippi River. St. Paul Chamber of Commerce, St. Paul, Minn. 1945: The Minnesota Farm Bureau Service Co. built a large chemical fertilizer plant at 50 Chester Street, St. Paul, on the Mississippi River and also a large warehouse for farm chemical supplies. The location was chosen because of feasible water transportation of heavy chemicals in order to lower the cost of chemical fertilizers for the farmers of this area. At a considerable expense a large bulk unloading dock was built. All these facilities were engineered by a reliable engineering firm, Toltz, King & Day with the help of the U.S. Engineers, with offices in St. Paul. The history of flood stages were studied and the plant was built. The working floor is 3 feet above the highest water stage in history. 1951: There was high water and considerable damage to the riverbank with a great deal of washout. 1952: A severe flood went considerably above the working floor, that caused more than $180,000 in damage. The riverbank washed out considerable again and with private capital we spent approximately $40,000 in riprap of heavy stone. All chemicals we use are water soluble. Insurance rates are prohibitive. It would be impossible to singly wall the plant in because the railroad and roads would be flooded. We have hesitated since in placing any additional capital investments in facilities because any savings that we could make by water transportation would be jeopardized by additional floods. St. Paul has become a center for the distribution of farm supplies due to the agriculture area around it, because it has one of the largest livestock markets in the country and because of water transportation. It is sad to note that because of the hazards of flooding, more facilities cannot be built by ourselves to take advantage of economy water transportation for such a large segment of our economy as agriculture. We hope you will use your influence and the good offices of our many organizations to get flood protection for industries and agri-* culture in St. Paul. Very truly yours, EXHIBIT II D. A. WILLIAMS, Mr. PHILLIP W. FITZPATRIC, THE VILLAUME BOX & LUMBER CO., DEAR SIR: Please accept this letter as evidence of our desire and interest that the lower West Side area be incorporated into the Mississippi flood control program. We were one of the manufacturers that suffered severe loss due to the Mississippi overflowing its existing banks in the spring of 1952. I would like to elaborate on some of the ensuing problems that were incurred during and after the flood. Mr. Linsmayer's report, which contained the actual audited dollar loss that was in excess of $250,000 and the figure building this up to over $500,000 was an effort to evaluate order default. Our area, which covers approximately 82 acres, roughly 1,500 feet from the edge of the river bank, had an average water depth of 30 inches. If you can visualize 5 million feet of lumber virtually floating within a 10-foot fence, you will get a picture of what our storage area looked like at this time. This, of course, was the external condition. The aftermath resulted in several inches, of black, mucky slime over everything that was touched by the floodwaters. Our factory area which covers approximately one square block was quite a demoralizing sight after the floodwaters had receded. Our factory is a two-story|| structure with an 8-foot basement and wood floor construction. The first floor, of the factory, including our executive and business offices are on the ground level so that the same 30-inch water level that we experienced externally was. prevelent internally. I believe the best way to describe the sight that we experienced would be to visualize the sand dunes in a small desert, having a maximum height of 4 to 6 feet. This is what our factory floor resembled. Factory damage and resultant deterioration is still a problem as we are presently experiencing deterioration of many thousands of feet of electrical cable in our basement. Had we performed a 100-percent replacement program, in the summer of 1952, our actual dollar losses would have increased substantially. Much of the wiring was said to have been undamaged and we could expect normal life from this, but unfortunately, the normal life amounted to less than 10 years after the flood. Aside from disrupting our business completely and necessitating an aroundthe-clock effort to remove our products from this area to safety, we have suffered untold losses from former customers whom we were unable to retain, lacking the ability to service them properly during this disruption. |