flood-control project for the Sacramento River be modified so as to provide for a channel depth of 6 feet between Chico Landing and Sacramento, and additional flood protection to be secured by channel improvements and the construction of the Kennett Reservoir, at an estimated additional cost of $7,700,000, of which $330,000 is the estimated cost of the channel improvement, and $7,370,000 is to be contributed to the first cost of the Kennett Reservoir as representing its navigation and flood-control benefits; subject to the provision that the Kennett Dam shall be built to a height of 460 feet and shall be operated to provide a minimum flow of 6,000 cubic feet per second between Chico Landing and Sacramento, and that the State of California, or other responsible local interests shall furnish the necessary rights-of-way and water rights. The board did not concur in the recommendation of the division engineer that the San Joaquin River be canalized from Stockton to Mendota in the interest of navigation at a cost of about $12,000,000, subject to the contribution of $6,000,000 from the State. It expressed the opinion that the canalizing of the river as proposed solely in the interest of navigation is not warranted by the reasonably prospective benefits, and it appeared to the board that the improvement in cooperation with the State should be left to the consideration of the State later. The Chief of Engineers concurred in the views and recommendations of the board. 5. Subsequent to the submission of the report herein under review, the State of California has enacted enabling legislation for the construction of the Central Valley project and for the issuance of bonds in the amount of $170,000,000 therefor, which embraces the works set forth in the comprehensive plan previously described to include the Kennett Dam on the Sacramento River, with atterbay and with a transmission line leading therefrom to the head of the San Francisco Bay region; a channel or canal with all necessary dams, pumping plants, and lines of conduit to convey a supply of water for irrigation and other benefits and uses up the San Joaquin River; for a storage dam on the San Joaquin River at Friant; and for canals and conduits to distribute the water conserved by the project. 6. Local interests, as represented by the State engineer, now request modification of the recommendations made in the report under review so as to permit the construction of the Kennett Dam at a height of 420 feet only, which is considered by them to be the maximum height economically justified and within the purview of the State project, and its operation to provide a minimum flow of 5,000 cubic feet per second between Chico Landing and Sacramento. Local interests further request that the improvement of the San Joaquin River be included in the project, and that the Federal contribution to the cost thereof, based on its navigation and flood-control benefits, be materially increased. 7. The Board of Engineers for Rivers and Harbors is of the opinion that from a navigation standpoint a 460-foot dam at Kennett is decidedly preferable, and over a long-range period the power development would be worth more than that to be secured from a 420-foot dam. It is of the opinion, however, that the 420-foot dam will meet the needs of flood control and irrigation, fur nish as large a block of power as can be readily absorbed under existing conditions, and provide for material improvement in the present unsatisfactory navigation conditions. It believes that the United States would be warranted in approving the 420-foot dam. This would provide for a 6-foot depth only to Colusa, with a corresponding reduction in navigation benefits from $6,000,000 to $5,000,000, and an increase in the cost of regulation works from $330,000 to $390,000. The Board finds no grounds for an increase in the Federal contribution on account of navigation or flood-control benefits, as urged by the State authorities. As to the portion of the comprehensive plan providing for the pumping of water up the San Joaquin River in connection with its improvement for navigation, it now appears to the Board that there is urgent need for the transfer of water southward from the delta, and that it would be desirable and advantageous to coordinate this with the improvement for navigation in accordance with the plans previously presented by the division engineer. The Board is of the opinion, however, that the savings in transportation costs as estimated by local interests are in excess of what may be reasonably anticipated, and therefore concurs with the division engineer in the opinion that this canalization should be contingent upon a contribution of $6,000,000 from local interests. 8. The Board therefore reports that it is advisable at this time to modify the recommendations in the documents under review, and it now recommends: (a) That the existing navigation and flood-control project for the Sacramento River be modified so as to provide for channel depths of 6 feet between Sacramento and Colusa and 5 feet between Colusa and Chico Landing, and for additional flood protection, to be secured by channel improvements and the construction of the Kennett Reservoir, at an estimated additional cost of $6,760,000 of which amount $390,000 is the estimated cost of channel improvements and $6,370,000 the Federal contribution to the first cost of the Kennett Reservoir; subject to the provisions that the Kennett Dam shall be built to a height of 420 feet and shall be operated so as to provide a minimum flow of 5,000 cubic feet per second between Chico Landing and Sacramento, and that the State of California or other responsible local interests shall furnish the necessary rightsof-way and water rights; and (b) that the existing navigation project for the San Joaquin River be modified so as to provide, in connection with the transfer of water from the Sacramento River to the San Joaquin River in the interests of irrigation, for a 6-foot channel from Stockton to Mendota to be secured by the construction of locks and dams, at an estimated additional cost of $12,000,000 for new work and $110,000 per year for for operation and maintenance, provided that the State of California and/or other responsible local interests will furnish the necessary rights-of-way and water rights, contribute $6,000,000 toward the first cost of the locks and dams, construct and operate the necessary pumping plants to maintain full pool levels and hold and save the United States free from all claims for damages from seepage. 9. After due consideration of these reports, I concur in the views and recommendations of the Beard that the Federal interest does not warrant an insistence upon the construction of the Kennett Dam to a height of 460 feet, that the benefits to navigation and flood control warrant a substantial direct Federal contribution toward the construction of this dam at the reduced height now proposed by the State, and that the improvement of the Sacramento River to provide a depth of 6 feet between Sacramento and Colusa and 5 feet between Colusa and Chico Landing at an estimated cost of $390,000 is advisable if the flow of the river is increased to the minimum flow of 5,000 cubic feet per second through the operation of the Kennett Reservoir. I do not concur in the view of the Board that either the local or general benefit warrants the construction of locks at the dams proposed in the San Joaquin River in order to provide a 6-foot channel from Stockton to Mendota. From the original report of the division engineer it appears that the project without locks is estimated to cost $6,000,000, and the locks $6,000,000 additional, a total of $12,000,000. A contribution by the State of $6,000,000 toward the cost of the project with locks would be the sum required to build the dams without locks. The original report indicates that after deducting the annual cost of the maintenance and operation of these locks. the economic savings from the eventual commerce to be anticipated, generously estimated, would return about 3 percent on their initial cost. It is clear that the operation of the locks would entail upon the State the cost of additional pumping which would be material if a substantial commerce developed. I am of the opinion that the expenditure proposed in the construction of these locks could, to better public advantage, be expended in advancing other features of the project. 10. The Federal interest in the conservation of water by the construction of the Kennett Dam largely exceeds in my opinion that evaluated by the division engineer and the Board, since by remedying the intrusion of salt water into the delta of the Sacramento and San Joaquin Rivers, it eliminates from consideration Federal participation in the construction and operation at great cost of locks and structures to prevent such intrusion, and assures a free and open passage for the highly important navigation through the channels of the delta. Based on this aspect of the case, as well as the direct benefits to navigation and flood control on the Sacramento River, I find that the general and Federal benefits from the construction of the Kennett Dam on the plans now proposed by the State warrants a special direct participation of the Federal Government of $12,000,000 in the cost of this structure. Very truly yours, 115920-35 E. M. MARKHAM, Major General, Chief of Engineers. REPORT OF THE BOARD OF ENGINEERS FOR RIVERS AND HARBORS BOARD OF ENGINEERS FOR RIVERS AND HARBORS, Subject: Sacramento, San Joaquin, and Kern Rivers, Calif. 1. This report is submitted in response to the following resolution, adopted February 9, 1934: "Resolved by the Committee on Rivers and Harbors of the House of Representatives, United States, that the Board of Engineers for Rivers and Harbors created under section 3 of the River and Harbor Act, approved June 13, 1902, be, and is hereby, requested to review the reports on the Sacramento, San Joaquin, and Kern Rivers, California, submitted in House Document Numbered 191, Seventy-third Congress, second session, with a view to determining if any modification of the recommendations therein made is advisable at this time." 2. In the reports under review a comprehensive plan for the improvement of the Sacramento, San Joaquin, and Kern Rivers for navigation in combination with the development of water power, control of floods, and the needs of irrigation was presented and recommendation made that the existing navigation and flood-control projects for the Sacramento River be modified to provide for a channel depth of 6 feet between Chico Landing and Sacramento and additional flood protection, to be secured by channel improvement and the construction of the Kennett Reservoir, at an estimated additional cost to the United States of $7,700,000, of which amount $330,000 is for channel improvements, and $7,370,000 is to be contributed to the first cost of Kennett Reservoir, subject to the provision that Kennett Dam shall be built to a height of 460 feet and shall be operated so as to provide a minimum flow of 6,000 cubic feet per second between Chico Landing and Sacramento, and that the State of California or other responsible local interests shall furnish the necessary rights-of-way and water rights. The Chief of Engineers stated that should this project "be incorporated in the Public Works program provided in the National Industrial Recovery Act, the Federal contribution of 30 percent to the cost of labor and material employed on the project as provided for in that act would, from the figures presented by the division engineer, place these projects on a selfsupporting basis." No action on these reports has been taken by Congress. 3. Local interests, as represented by the State engineer, who is also the executive member of the Water Project Authority of the State of California, request modification of the recommendations made in the reports under review so as to permit construction of the Kennett Dam to a height of 420 feet only, and its operation so as to provide a minimum flow of 5,000 second-feet between Chico Landing and Sacramento. It is also requested that the direct Federal contribution toward the first cost of the dam be increased to approximately $20,000,000. It is claimed that the California law under which this comprehensive plan, known as the "Central Valley project ", will be constructed does not permit a bond issue sufficient to finance the cost of a 460-foot dam, and furthermore that a 420-foot dam is more economical and will adequately provide for navigation. It is urged that in the reports under review the benefits to navigation and flood control from the Kennett Dam have been underestimated and that under the present national policy a much larger direct Federal contribution should be made. 4. The report of the division engineer herewith contains more detailed information concerning the matter under consideration. He states that in the reports under review the conclusions as to the benefits to navigation and flood control that could reasonably be expected from the construction of Kennett Reservoir were reached after exhaustive study and full consideration, and that there are no new developments which warrant modification of those conclusions. He is still of the opinion that the value of the Kennett Reservoir to navigation, if constructed to a height of 460 feet with a minimum flow of 6,000 second-feet, would not exceed $6,000,000; and that if constructed to 420 feet with a minimum flow of 5,000 second-feet this value would not exceed $5,000,000; also that the present flood-control value of the reservoir, based on reduction of actual damages from overflow to land, property, and lines of communication, does not exceed the estimate of $4,100,000 previously given. He states that there are indirect benefits which will accrue from better navigation facilities and in creased flood protection which will be reflected in greater prosperity and convenience but cannot be reduced to dollars and cents. He does not concur in the contention of the State authorities that the 420-foot dam is more economical than the 460-foot one, but in view of the need and economic justification for conservation of water resources in the Sacramento-San Joaquin Basin and in order that the prosecution of the Central Valley project may be facilitated under the provisions of the National Industrial Recovery Act, he believes that the United States would be warranted in approving a 420-foot dam and in contributing to the first cost of the reservoir the full estimated flood-control value, making a total, in round numbers, of $9,000,000; this contribution to be made directly and in addition to any grant based on 30 percent of the cost of labor and materials made toward the construction of the reservoir as a non-Federal project under the Public Works program. He recommends modification accordingly. 5. In the reports under review, the division engineer recommended that the existing navigation project for the San Joaquin River be modified so as to provide, when the transfer of water from the Sacramento River to the San Joaquin River becomes necessary in the interest of irrigation, for a 6-foot channel in this stretch of the river to be secured by the construction of locks and dams, at an estimated additional cost of $12,000,000 for new work and $110,000 per year for operation and maintenance, provided the State of California and/or other responsible local interests will furnish the necessary rights-of-way and water rights, contribute $6,000,000 toward the first cost of the locks and dams, construct and operate the necessary pumping plants to maintain full pool levels, and hold and save the United States free from all claims for damages from seepage. This recommendation was not concurred in by the Board of Engineers for Rivers and Harbors nor by the Chief of Engineers, the latter stating that the plans for the development of the San Joaquin River for navigation in combination with irrigation did not appear to be sufficiently advanced to warrant a definite recommendation at that time. 6. The State engineer now states that additional requests for water in the southern San Joaquin Valley recently received make it necessary that the San Joaquin River pumping system be installed concurrently with the other units constituting the first step in the comprehensive plan, and requests that the former recommendation be modified so as to provide for the canalization of the San Joaquin River to Mendota entirely at the expense of the United States. He claims that the savings in transportation costs of commodities which would move over the improved waterway would more than justify the cost. The division engineer appeared before the Board and concurred in the statement of the State engineer as to the immediate desirability for this work, but stated that he was unable to change the conclusion previously reached that local interests should contribute $6,000,000 toward the first cost of the locks and dams. 7. At the request of interested parties a hearing was held by the Board on March 27, at which the State engineer and others interested appeared and presented verbal arguments in support of the requests as outlined above. VIEWS AND RECOMMENDATIONS OF THE BOARD OF ENGINEERS FOR RIVERS AND HARBORS 8. The latest report under review was dated June 27, 1933. The Board's recommendations in that report as to the height of the Kennett Dam and the proper amount of Federal contribution were made only after extended study and careful consideration of all features of the project. The only change in conditions since then as to these features has been the passage of State legislation authorizing the construction of this project, which, it is claimed, limits the height of the Kennett Dam to 420 feet. It is also again urged that a dam of this height is more economical than one 460 feet high. The Board concurs in the view of the division engineer that this contention cannot be sustained. From the navigation standpoint the 460-foot dam is decidely preferable and over a long range period the power developed would be worth more on account of the greater peaking capacity. However, the 420-foot dam will meet the needs of flood control and irrigation, furnish as large a block of power as can be readily absorbed under existing conditions of the power market, and will provide for material improvement of the present unsatisfactory navigation conditions; and since insistence upon the 460-foot dam might prevent or unduly delay execution of the project by the State authorities, it is believed that the United States would be warranted in approving the lower dam. This will provide a 6-foot depth only to Colusa, with a corresponding reduction in navigation benefits from $6,000,000 to $5,000,000, and an increase in the cost of the regulation works from $330,000 to $390,000. The Board finds no grounds for an increase in the Federal contribution on account of navigation or floodcontrol benefits as urged by the State authorities, nor can it concur in the recommendation of the division engineer that the full amount of the floodcontrol value be contributed rather than one-third thereof, as previously recommended in accordance with the well-established congressional policy for floodcontrol work on this river. 9. As to the portion of the comprehensive plan providing for the pumping of water up the San Joaquin River in connection with its improvement for navigation, it now appears that there is immediate need for the transfer of water southward from the delta and that it would be desirable and advantageous to coordinate this with the improvement for navigation in accordance with the plans previously presented by the division engineer. The Board is of the opinion, however, that the savings in transportation costs as estimated by local interests are in excess of what may be reasonably anticipated, and therefore concurs with the division engineer in the opinion that this canalization should be contingent upon a contribution of $6,000,000 by local interests. 10. The Board therefore reports that it is advisable at this time to modify the recommendations in the documents under review, and it now recommends: (a) That the existing navigation and flood-control project for the Sacramento River be modified so as to provide for channel depths of 6 feet between Sacramento and Colusa and 5 feet between Colusa and Chico Landing, and for additional flood protection, to be secured by channel improvements and the construction of the Kennett Reservoir, at an estimated additional cost of $6,760,000, of which amount $390,000 is the estimated cost of channel improvements and $6,370,000 is to be contributed to the first cost of the Kennett Reservoir; subject to the provisions that the Kennett Dam shall be built to a height of 420 feet and shall be operated so as to provide a minimum flow of 5,000 cubic feet per second between Chico Landing and Sacramento, and that the State of California or other responsible local interests shall furnish the necessary rights-of-way and water rights; and (b) that the existing navigation project for the San Joaquin River be modified so as to provide, in connection with the transfer of water from the Sacramento River to the San Joaquin River in the interests of irrigation, for a 6-foot channel from Stockton to Mendota to be secured by the construction of locks and dams, at an estimated additional cost of $12,000,000 for new work and $110,000 per year for operation and maintenance, provided that the State of California and/or other responsible local interests will furnish the necessary rights-of-way and water rights, contribute $6,000,000 toward the first cost of the locks and dams, construct and operate the necessary pumping plants to maintain full pool levels, and hold and save the United States free from all claims for damages from seepage. 11. In its consideration of this case, the Board has confined itself to a consideration of the direct benefits to navigation and flood control that would result from the construction of this project. The State engineer urges that more liberal consideration be given thereto. He states: "In view of the broadened national policy during this time of depression and unemployment with regard to Federal navigation and flood-control projects and in view of the great merits and necessities of the Central Valley water project of California, the State believes that the War Department will be fully justified, and in line with present national policy should extend sufficient assistance to this project with its many items of national interest to assure its early execution during the time of employment need." While the Board recognizes that large indirect and general benefits might accrue from the proposed project, it considers a discussion of the Federal participation in the cost of the project that might be justified thereby to be beyond its province. For the Board: W. J. BARDEN, |