For the past few years, the Corps has been working on what is known as the Restructured Upper Mississippi River-Illinois Waterway Feasibility Study, the heart of which is a multibillion-dollar proposal to double the length of up to a dozen locks on the river. The Research Council first reviewed the feasibility study in 2001 during controversies over the accuracy of models being used by the Corps to justify lock expansion based on increased demand for barge transportation. More than 100 million tons of cargo-half of it grain destined for international markets, the other half goods such as construction materials, coal, and chemicals-are shipped along the navigation system each year. The locks, which along with dams allow barges to traverse uneven river depths, were originally designed for "tows" of barges up to 600 feet long, but the length of a typical tow has increased, forcing the Corps to look for ways to relieve congestion. The book finds the U.S. Army Corps of Engineers has made good progress in broadening its proposed plan for navigation improvements on the Upper Mississippi River-Illinois Waterway system to give greater consideration to ecological restoration. However, the plan still does not provide sufficient economic justification for expanding locks on the rivers because of flaws in the models the Corps used to predict demand for barge transportation. Little attention is paid to inexpensive, nonstructural navigation improvements that could help better manage existing levels of barge traffic. The revised plan has been usefully expanded to include many creative and potentially useful ecosystem restoration measures. These measures, however, should be more firmly grounded in river science principles and more broadly consider ways the river's ecology might affect or be affected by navigation, recreation and other uses.
The U.S. Army Corps of Engineers recently completed its feasibility study for the Upper Mississippi River-Ilinois Waterway, which was one of the agency's longest and most complicated studies in its history. The first two reports from this WSTB committee reviewed analytical aspects of the Corps feasibility study. Water Resources Planning for the Upper Mississippi River and Illinois Waterway considers the broader issue of managing the multiple resources of the Upper Mississippi River and Illinois Waterway, especially with regard to several, recently-issued NRC reports on Corps of Engineers planning procedures. The report finds that a key issue regarding planning decisions on these river systems is the ambiguity related to several different pieces of legislation and acts that govern river management, and thus recommends that the administration and Congress clarify the federal intent for managing this river and waterway system. The report recommends an independent, retrospective reivew of the experience with a federal inter-agency Principals Group, which was convened to provide guidance to the Corps study. It is also recommended that the Corps strive to incorporate flexible, adaptive management principles through its entire water planning program, including operations of the lock and dam system.
In 1988, the U.S. Army Corps of Engineers began an investigation of the benefits and costs of extending several locks on the lower portion of the Upper Mississippi River-Illinois Waterway (UMR-IWW) in order to relieve increasing waterway congestion, particularly for grain moving to New Orleans for export. With passage of the Flood Control Act of 1936, Congress required that the Corps conduct a benefit-cost analysis as part of its water resources project planning; Congress will fund water resources projects only if a project's benefits exceed its costs. As economic analysis generally, and benefit-cost analysis in particular, has become more sophisticated, and as environmental and social considerations and analysis have become more important, Corps planning studies have grown in size and complexity. The difficulty in commensurating market and nonmarket costs and benefits also presents the Corps with a significant challenge. The Corps' analysis of the UMR-IWW has extended over a decade, has cost roughly $50 million, and has involved consultations with other federal agencies, state conservation agencies, and local citizens. The analysis has included many consultants and has produced dozens of reports. In February 2000, the U.S. Department of Defense (DOD) requested that the National Academies review the Corps' final feasibility report. After discussions and negotiations with DOD, in April 2000 the National Academies launched this review and appointed an expert committee to carry it out.
Over the past century, the U.S. Army Corps of Engineers has built a vast network of water management infrastructure that includes approximately 700 dams, 14,000 miles of levees, 12,000 miles of river navigation channels and control structures, harbors and ports, and other facilities. Historically, the construction of new infrastructure dominated the Corps' water resources budget and activities. Today, national water needs and priorities increasingly are shifting to operations, maintenance, and rehabilitation of existing infrastructure, much of which has exceeded its design life. However, since the mid-1980s federal funding for new project construction and major rehabilitation has declined steadily. As a result, much of the Corps' water resources infrastructure is deteriorating and wearing out faster than it is being replaced. Corps of Engineers Water Resources Infrastrucutre: Deterioration, Investment, or Divestment? explores the status of operations, maintenance, and rehabilitation of Corps water resources infrastructure, and identifies options for the Corps and the nation in setting maintenance and rehabilitation priorities.
The U.S. Army Corps of Engineers, through its civil works program, can take pride in its contributions throughout our nation's history to the development of waterways infrastructure, navigation, flood damage reduction, water resources development and protection, and environmental restoration. Many projects that have been pioneering in their concept and bold in their execution were made possible by the creativity and dedication of outstanding scientists, engineers, and builders. The Corps has always had review processes for evaluation of its planning studies and projects, with the focus often being largely on the technical aspects. In recent years, however, increased consideration of such factors as environmental impacts, economic evaluations, political pressures, and new paradigms about flood control and management has engendered increased criticism and concern that some of the Corps' studies may have led to conclusions, recommendations, and project decisions that are not adequately supported by the assumptions and analyses that were used. The focus of the report is on review of Corps of Engineers studies, with careful attention given to the need for independent, external reviews by panels of well-qualified and impartial experts for large, complex, and sensitive projects.
The tension between wildlife protection under the Endangered Species Act and water management in the Platte River Basin has existed for more than 25 years. The Platte River provides important habitat for migratory and breeding birds, including three endangered or threatened species: the whooping crane, the northern Great Plains population of the piping plover, and the interior least tern. The leading factors attributed to the decline of the cranes are historical overhunting and widespread habitat destruction and, for the plovers and terns, human interference during nesting and the loss of riverine nesting sites in open sandy areas that have been replaced with woodlands, sand and gravel mines, housing, and roadways. Extensive damming has disrupted passage of the endangered pallid sturgeon and resulted in less suitable habitat conditions such as cooler stream flows, less turbid waters, and inconsistent flow regimes. Commercial harvesting, now illegal, also contributed to the decline of the sturgeon. Endangered and Threatened Species of the Platte River addresses the habitat requirements for these federally protected species. The book further examines the scientific aspects of the U.S. Fish and Wildlife Service's instream-flow recommendations and habitat suitability guidelines and assesses the science concerning the connections among the physical systems of the river as they relate to species' habitats.
For the past few years, the Corps has been working on what is known as the Restructured Upper Mississippi River-Illinois Waterway Feasibility Study, the heart of which is a multibillion-dollar proposal to double the length of up to a dozen locks on the river. The Research Council first reviewed the feasibility study in 2001 during controversies over the accuracy of models being used by the Corps to justify lock expansion based on increased demand for barge transportation. More than 100 million tons of cargo-half of it grain destined for international markets, the other half goods such as construction materials, coal, and chemicals-are shipped along the navigation system each year. The locks, which along with dams allow barges to traverse uneven river depths, were originally designed for "tows" of barges up to 600 feet long, but the length of a typical tow has increased, forcing the Corps to look for ways to relieve congestion. The book finds the U.S. Army Corps of Engineers has made good progress in broadening its proposed plan for navigation improvements on the Upper Mississippi River-Illinois Waterway system to give greater consideration to ecological restoration. However, the plan still does not provide sufficient economic justification for expanding locks on the rivers because of flaws in the models the Corps used to predict demand for barge transportation. Little attention is paid to inexpensive, nonstructural navigation improvements that could help better manage existing levels of barge traffic. The revised plan has been usefully expanded to include many creative and potentially useful ecosystem restoration measures. These measures, however, should be more firmly grounded in river science principles and more broadly consider ways the river's ecology might affect or be affected by navigation, recreation and other uses.
The U.S. Army Corps of Engineers has a long history of managing navigation, floods, and other water-related issues on the Upper Mississippi and Illinois Rivers. A recent chapter in that history is the problem of waterway congestion at several locks on the lower portion of the Upper Mississippi River. The Corps has studied this problem and its possible solutions since the late 1980s, producing a draft feasibility study in 2000 and an interim report on a restructured feasibility study in 2002. A committee was convened to review and provide advice on the most recent phase of the Corps' analytical efforts.
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