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LA 2012 National Planning Conference
American Planning Association
Threats to California’s Delta Sustainability:
Overview of the Legal and Planning Framework
Monday, April 16, 2012
Presented By: Margaret M. Sohagi The Sohagi Law Group, PLC
11999 San Vicente Boulevard, Suite 150
Los Angeles, CA 90049-5136
Telephone: (310) 475-5700
Email: [email protected]
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Multi-Hazards Land Use Planning
• The Disaster Mitigation Act of 2000
• AB 2140: Safety Element
• AB 162: Flood Planning
• SB 5: Flood Management
• AB 70: Flood Liability
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The Disaster Mitigation Act of 2000
• Updated the Federal Robert T. Stafford Disaster
Relief and Emergency Assistance Act. • Reinforces the importance of pre-disaster mitigation
planning. • Requires State, local and Tribal governments to
develop a Hazard Mitigation Plan in order to receive certain types of non-emergency disaster assistance. ▫ Encourages jurisdictions to integrate mitigation with
everyday decision-making regarding land-use planning, flood plain management, site design and other functions. 44 CFR 201.6
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General Plans: Safety Element (AB 2140 Hancock)
• Authorizes a city, county, or a city and county to
adopt, with its safety element, a federally specified local Hazard Mitigation Plan (HMP), and requires the Office of Emergency Services to give financial incentives to help with developing and adopting a plan. (Gov. Code § 65302.6.)
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General Plans: Safety Element
• Local HMP must include: Earthquake evaluation performance of public
facilities/essential services.
Inventory of private facilities that are potentially hazardous.
Plan to reduce potential risk of facilities.
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AB 162: Flood Planning (Wolk) Chapter 369, Statutes of 2007
• AB 162 expands consideration of flood risk in local land use planning throughout California, requiring cities and counties to amend local general plans in several very specific ways.
• Requires cities and counties to address flood-related matters in the land use, conservation, safety and housing elements of their general plans. (Gov. Code § 65302.)
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AB 162
General Plan elements
• The land use element must identify and annually review the areas covered by the general plan that are subject to flooding as identified by flood plain mapping by either the Federal Emergency Management Agency (FEMA) or the Department of Water Resources (DWR). (Gov. Code § 65302(a).)
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AB 162
General Plan elements (cont’d)
• Upon the next revision of the housing element on or after January 1, 2009…
▫ the conservation element of the general plan must identify rivers, creeks, streams, flood corridors, riparian habitat, and land that may accommodate floodwater for the purposes of groundwater recharge and storm-water management. (Gov. Code § 65302(d)(3).)
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AB 162
General Plan Safety Elements • Upon the next revision of the housing element on or
after January 1, 2009… ▫ The safety element must identify information
regarding flood hazards including: Flood hazard zones;
Maps published by FEMA, USACE, DWR, CVFPB, OES, etc. including the 200-year flood plain maps;
Maps of Levee protection zones;
Areas subject to inundation from levee failure;
Historical data on flooding;
Existing and planned development in flood hazard zones; and
Agencies responsible for flood protection.
(Gov. Code § 65302(g)(2)(A).)
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AB 162
General Plan Safety Elements (cont’d)
Establish goals, policies and objectives to protect from unreasonable flooding risks including:
Avoiding or minimizing the risks of flooding new development;
Evaluating whether new development should be located in flood hazard zones; and
Identifying construction methods to minimize damage;
(Gov. Code § 65302(g)(2)(B)(i)-(ii).)
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AB 162
General Plan Safety Elements (cont’d)
▫ Maintaining the integrity of essential public facilities during flooding;
▫ Locating new essential public facilities outside of flood hazard zones or identifying methods to minimize damage;
▫ Establishing cooperative working relationships among public agencies;
▫ Establishing feasible implementation measures.
(Gov. Code § 65302(g)(2)(B)(iii)-(v); (C).)
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• Housing Needs: The determination of available land suitable for urban development may exclude lands where FEMA or DWR has determined that the flood management infrastructure designed to protect that land is not adequate to avoid the risk of flooding. (Gov. Code §§ 65584.04; 65584.06.)
AB 162 General Plan Safety Elements (cont’d)
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AB 162
General Plan Safety Elements (cont’d)
• Establishes consultation and review procedures.
• Additional review provisions apply to each county or city located within the Sacramento and San Joaquin Drainage District.
(Gov. Code § 65352.)
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SB 5: Flood Management (Machado)
Chapter 364, Statutes of 2007
• SB 5 seeks to address flooding problems in portions of the Delta.
• Provides flood management for the Central Valley.
• 200 year flood is the new standard for urban areas.
• New Central Valley Flood Management (CVFM) Plan by 2012.
• Amends Government Code, Water Code and Health and Safety Code.
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SB 5(cont’d)
• A Central Valley Flood Protection(CVFP) Plan must be adopted by July 1, 2012.
• Dept. of Water Resources and Central Valley Flood Protection Board to prepare.
• http://www.cvfpb.ca.gov/
▫ Central Valley Flood Protection Act of 2008
▫ Water Code Section 9600 et seq.
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SB 5 (cont’d)
• Cities and counties within the boundaries of the CVFP District must amend their general plans and zoning to conform to the CVFP Plan.
• General Plan amendments must be completed within 24 months of the adoption of the flood protection plan.
• Zoning amendments must be completed within 36 months.
(Gov. Code § 65302.9.)
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Central Valley Flood Protection Plan
• Primary goal is to improve flood risk management.
• Called the “State Systemwide Investment Approach”.
• Focuses on improving flood protection for land protected by State Plan of Flood Control (SPFC) facilities.
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California Department of Water Resources
Division of Flood Management
Geographic Scope of Central Valley Flood Protection Plan
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CVFP Plan (cont’d)
• Under the CVFPP (for areas protected by SPFC facilities only): ▫ Urban level of flood protection against a 200-yr flood
or urban and urbanizing areas (i.e. Stockton) ▫ Options for protecting small communities from a 100-
yr flood ▫ Rural-agric protection option ▫ Maintaining SPFC levee crown elevations and access
roads ▫ Levee improvements, ▫ Agricultural conservation easements
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CVFPP: Local Requirements
• All cities and counties within the Sacramento-San Joaquin Valley will be required to make findings related to the urban (200-year) level of flood protection before entering into a development agreement for a property, approving a discretionary permit or entitlement for any property development or use, or approving a ministerial permit that would result in construction of a new residence, or approving a tentative map/parcel map for a subdivision.
• California Government Code Sections 65865.5, 65962, and 66474.5
• http://www.cvfpb.ca.gov/CVFPP/03_CVFPP-organization-sheet-12jan2012.pdf
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AB 70: Flood Liability (Jones)
• A city or county may be held responsible for portions of property damage caused by a flood to the extent that it has increased the state’s exposure to liability for property damage by unreasonably approving new development in a previously undeveloped area that is protected by a state flood control project, unless the city or county meets specified requirements.
• Water Code § 8307
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Why Do We Need Sustainable Levees in the Delta?
Mike Mirmazaheri, PE, CFM
Manager, Delta Levees Program
2012 National Planning Conference
Los Angeles, California
April 16, 2012
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Sample Headline
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Sample Headline
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May 3, 2012
Delta Facts
Supports California’s
multi-billion-dollar agricultural industry
Provides recreation to
12 million users
Over 24 million people
depend on the Bay-Delta
system for drinking water! (two-thirds of the State’s population)
Supports the largest estuary on the west coast -
and 80% of the state's commercial salmon fisheries
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May 3, 2012
De
lta Levee
s
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Feather River Orographics
California Hydrology
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Precipitation
vs.
Population
75% of water
supply in No. Cal
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SWP
Max. Pumping Capacity – 10,300 cfs
CVP
Max. Pumping Capacity – 4,600 cfs
Salinity Control – flushing the system
THM – bi-product
Court Decisions
Conveyance Challenges & Reliability
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May 3, 2012
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Threats to the Delta
Possible impacts to the Delta from:
- Subsidence
- Earthquakes
- Floods
- Climate Change
- Combination of above
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Why Mitigate the Threats?
Delta Levees Contribute to:
- Minimizing Disruption of Water Supplies
- Maintaining Quality of Water Supplies
- Reducing Salts in Water Supplies
- Preserving Ecosystem
- Protecting State Infrastructure
- Protecting Local Assets
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DRMS
Phase I
• Risk Analysis to Evaluate the Impact to Delta Levees
• Consequences to Economy & Eco-System based on Risks
Phase II
• Development of Risk Reduction/Risk Management Strategies for Long-Term Management of Delta
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Levee Standards
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EBMUD Aqueduct
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• System-wide stable levees
• HMP standard throughout the Delta
• PL84-99 Standard, with justification
• Integrate with other large-scale planning efforts (CVFPP, Delta Plan, BDCP)
• Encourage multi-benefit projects
• Prioritize projects that provide highest benefits
• Ensure projects are fully mitigated
• Ensure net habitat enhancement for fish and wildlife
Delta Levees Guiding Principals
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Priority for DWR Investment in Delta Integrated FM
Categories of Benefit Analysis
Localized Flood
Protection
Levee Network Ecosystem
Conservation
1 Protect Urban Areas Protect Water Quality and
Water Supply Conveyance in
the Delta
Protect Existing and
Provide for Net Increase in
Channel-margin Habitat
2 Protect Small
Communities and
Critical Infrastructure
(Located Outside of
Urban Areas)
Protect Flood Water
Conveyance in and through
the Delta
Protect Existing and
Provide for Net
Enhancement of
Floodplain habitat
3 Protect Agriculture and
Local Working
Landscapes
Protect Cultural, Historic,
Aesthetic, and Recreational
Resources (Delta as Place)
Protect Existing and
Provide for Net
Enhancement of Wetlands
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Sample Levee Work
Before After
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Questions?
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Levee Risk and Reliability
in the Bay Delta
Robb Eric S. Moss, Ph.D., P.E.
Assoc. Prof. of Hazard and Risk Engineering
APA 2012 National Planning Conference
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Hazard
Risk
Mitigation
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Interstate and State Highways
Rail Corridors and Infrastructure
Deep Water Port Facilities
High Dollar Agricultural Land
Residential and Municipal Land
Power Transmission and Storage
Aquaducts and Canals (>20 million users)
~1700 km of levees
after DWR 1993
Hazard
Risk
Mitigation
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o Construction
o Foundation Conditions
o Maintenance
o Levee Continuity
o Freeboard/Subsidence
DWR 1993
Hazard
Risk
Mitigation
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Loading
Function:
Failure
Mechanism:
Ground
Shaking
High
Water
Static
Seepage Over-
Topping
ErosionSlump/
Spread
SlidingBearing
Mechanisms are often Compounded and Cascading.
Causative Loading Mechanism can be Difficult to Pinpoint.
Aging, Sea Level Rise, Urbanization, Poor Maintenance…
from Moss and Eller 2007
Hazard
Risk
Mitigation
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Hazard
Risk
Mitigation
Greater than 186 levee failures since 1900.
Bearing Sliding Slump/Spread
Seepage Erosion Over-topping
from Moss and Eller 2007
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Hazard
Risk
Mitigation
Lessons learned/relearned from Katrina
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Hazard
Risk
Mitigation
Lessons learned/relearned from Katrina
o Don’t build levees out of sand…
o Watch the intersections/connections
o Jurisdictional issues???
o Be sure of your benchmark
o Know you loading mechanisms
o Maintain levees per design
o Treat as a system and not components
o Communicate the risk
New Orleans Levees design ~250yr return
Bay Delta Levees design ~100yr return
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Risk=(Probability of Failure)x(Consequences)
Component Failure – single levee failure
System Failure – failure of “weak link”
results in overall failure
Consequences – property loss, crop loss, infrastructure and building
loss, economic loss, and life loss.
Hazard
Risk
Mitigation
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Jones Tract (June 2004)
$10 million crop loss
$100 million clean up
Hazard
Risk
Mitigation
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17th Street Canal NOLA
The most recently constructed elements of the city’s
flood control infrastructure (built in the mid 1990’s).
Rogers 2009
Hazard
Risk
Mitigation
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Hazard
Risk
Mitigation
Shut-down of CA aqueduct
Flooding of Residential Areas
Disruption of Power, Rail, Hwy, Port
State Wide Economic Repercussions
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Hazard
Risk
Mitigation
after NGS
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Hazard
Risk
Mitigation Pinpoint Critical Nodes/Lifelines
(consequences)
Identify Modes of Component/System Failure
(probability)
Mitigate – Engineering / Planning / Design
“not rocket science”
time and resource limited
proactive as well as
informed reactive
redundant and
resilient systems
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12 Recommendations from Delta Vision
• Delta needs special legal status
• Ecosystem must function as a healthy estuary
• Water supply must be managed with higher efficiency
• “reasonable use” and “public trust” must be the
foundation of policy
• Conservation, efficiency, and sustainability must drive
policy
• Diversions must be reduced and diversion timing
improved
• New infrastructure is in dire need (peripheral canal)
• Strengthen existing levees, improve floodplain
management, improve water circulation and quality
• Governance and boundaries need to be changed; an
independent body with secure funding and the ability
to make change
• Inappropriate urbanization must be curbed
• Policies should target resiliency and adaptability
Hazard
Risk
Mitigation
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Hazard
Risk
Mitigation
1) Planning - Don’t build in flood-prone areas
2) Engineering – Systems and Component Fixes/Redundancy
Bearing Sliding Slump/Spread
Seepage Erosion Over-topping
raise crest (planning
and design failure) seepage barrier and/or
surface improvement armoring and/or surface
improvement
structural fix and/or
soil modification
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Hazard
Risk
Mitigation
Flood Hazard Legislation
AB162: Requires cities and counties to address flood-related
matters in the land use, conservation, safety, and housing
elements of their general plan.
AB70: Provides that a city or county may be required to
assume a fair and reasonable share of the increased flood
liability caused by its unreasonable approval of developments
following the failure of a state flood control project.
State Multi-Hazard Mitigation Plan (SHMP)
Outlines California State Government's understanding and
evaluation of the hazards the state faces and the strategies,
goals, and activities it will pursue to address them (CalEMA
2007 and 2010).
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References
California Emergency Management Agency (2010) “State Hazard Mitigation
Plan (SHMP).” http://hazardmitigation.calema.ca.gov/.
DWR (1993). Sacramento San Joaquin Delta Atlas. Department of Water
Resources, Sacramento.
Florian, M., Frank, R. M., McKernan, T., McPeak, S. W., Reilly, W. K., and
Seed, R. B. (2008). "Delta Vision: Our Vision for the California Delta."
Govenor's Delta Vision Blue Ribbon Task Force.
Moss, R. E. S., and Eller, J. M. (2007). "Estimating the Probability of Failure
and Associated Risk of the California Bay Delta Levee System." GeoDenver,
ASCE conf. proc.
National Geographic. (2010).
http://ngm.nationalgeographic.com/2010/04/plumbing-california
Rogers, J.D. (2009) Personal Communication, Missouri University S&T.
Seed, R. B., Bea, R. G., Athanasopoulos, A. G., Boutwell, G. P., Bray, J. D.,
Cheung, C., Cobos-Roa, D., Harder, L. F., Moss, R. E. S., Pestana, J. M.,
Riemer, M. F., Rogers, J. D., Storesund, R., Vera-Grunauer, X., and
Wartman, J. (2008). "New Orleans and Hurricane Katrina. III: The 17th
Street Drainage Canal." Journal of Geotechnical and Geoenvironmental
Engineering, 134(5), 750-761.