(April 19, 1946) SKAGWAY RIVER AND HARBOR, ALASKA The CHAIRMAN. General Crawford, there has been presented the report in connection with the improvement for Skagway, Alaska. What is the problem, and under what authority is the report submitted, and what is proposed to be done? General CRAWFORD. May I ask Colonel Herb to present the report? The CHAIRMAN. Yes. Skagway is one of the principal towns in Alaska. Colonel HERB. Yes, sir. The CHAIRMAN. That is a report which was submitted under the authority of a House Flood Control Committee resolution adopted in 1944. Colonel HERB. Yes, sir. The CHAIRMAN. What is your problem? STATEMENT OF COL. E. G. HERB, ASSISTANT DIRECTOR, CIVIL WORKS DIVISION, OFFICE, CHIEF OF ENGINEERS Colonel HERB. Skagway Harbor, Alaska, is about 950 miles north of Seattle, Wash., and is located in a small indentation on Taiya Inlet. Taiya Inlet joins the Lynn Canal forming a narrow strip of waterway extending into the mainland of southeastern Alaska. Skagway River, which drains an area of about 125 square miles, rises in White Pass at the boundary between British Columbia and Alaska and flows southwestward in narrow canyon that is not navigable to discharge into Taiya Inlet. The lower 4 miles of the canyon floor, 800 feet wide at the upper end and 3,000 feet wide at the mouth, is a delta formed of silt, sand, slate particles, and boulders. Skagway is the northerly terminus of the inside passage ship route to Alaska; the ocean terminus of the White Pass & Yukon Route Railroad, which extends 111 miles to Whitehorse at the head of navigation on the Yukon River in Canada; and the terminus of the pipe line through which gasoline can be pumped in either direction between Skagway and Whitehorse. Skagway is essentially a transfer point between water and land transportation. There is no existing flood-control project at that location. There is a Federal navigation project at this locality. The floodcontrol work has consisted entirely of emergency repairs and protective work made by Army engineer troops after the 1943 and 1944 floods. The flood-control work performed under the supervision of the Northwest service command included emergency repair of the existing project dike, the reconstruction of approximately 2,500 feet of existing railroad dikes, and the construction of 7,800 feet of new dikes. Floods at Skagway occur principally in September and October and in the Spring and result from either rainfall or the melting of snow. Unless the discharge reaches about 15,000 cubic feet per second very little flood damage results. The district engineer estimates that the discharges of that amount or greater may be expected on an average of 1 in 7 years, and floods of 30,000 cubic feet per second or greater 1 in 15 years. The worst floods of record at Skagway were those in 1943 and 1944, with an estimated discharge of 35,000 and 30,000 cubic feet per second respectively. The flood of 1943 resulted in an estimated damage of $235,000. Emergency dike work prevented the flooding of the city and averted much greater damage. The annual average flood damages are estimated at $14,800 at the city; $4,100 at the Sanatorium, which is about a mile upstream from Skagway, which during the war was used as an Army hospital and now has been turned back to the agency representing the Department of Interior; and other area damages, $6,340, making the total annual flood damage estimated at approximately $25,000. The CHAIRMAN. What is the proposed solution, the estimated cost, and local contribution? Colonel HERB. The plan of improvement provides for the restoration of the project breakwater to its original cross-section, adding two wedge-shaped rock groins thereto to protect it, and extend the breakwater 300 feet seaward; increasing the height of the existing project dike to provide a free-board of 3 feet above the 1943 flood; lowering and reinforcing the toe to protect it from undermining and extending it from Twenty-third Avenue to connect with the railroad track fill above the city so as to provide a continuous well-located line of protection for the city and to supersede the insecure existing rock cribs; and raising and strengthening the sanatorium dike to a height of 3.5 feet above the flood of 1943. Local interests are required to furnish assurances satisfactory to the Secretary of War that they will provide without cost to the United States all necessary lands, easements, and rights-of-way and quarry rights; hold and save the United States free from damages due to improvements; and in lieu of maintenance of the project dike and breakwater and extension thereof, will contribute $500 annually toward maintenance of the reconstructed and extended city dike and harbor breakwater. The CHAIRMAN. What is the ratio of costs to benefits? Colonel HERB. The total cost is estimated to be $438,000; and the ratio of costs to benefits is 1.0 to 0.53. In that connection the Board of Engineers, after considering the report of the division and district engineers finds that the estimated expenditures required for flood protection for the city of Skagway and for the preservation of the harbor for deep-draft commerce are fully justified especially in view of the importance of the port in encouragement of future development of the area. It was believed by the Board of Engineers for Rivers and Harbors that the proposed contribution by local interests of $500 annually in lieu of maintenance of the city dike and breakwater in prolongation thereof is appropriate under the circumstances. The Board states that in view of the public need for the sanatorium and the tangible and intangible benefits which will result from its protection, the expenditure of the necessary funds for that purpose is considered justified. The CHAIRMAN. And the Chief of Engineers approves the recommendation of the Board? Colonel HERB. Yes, sir. This report was also referred to the Secretary of the Interior, and the Secretary by letter dated the 12th of April 1946, expressed his approval of the proposed improvement to Skagway River project, Alaska, and states that the Department of Interior feels that the project, when completed, will contribute to the further development of natural resources in Alaska. (The report of the Board Engineers for Rivers nad Harbors and of the Chief of Engineers together with the views and comments of the Secretary of the Interior and the Governor of Alaska are as follows:) WAR DEPARTMENT, OFFICE OF THE CHIEF OF ENGINEERS, The CHAIRMAN, COMMITTEE ON FLOOD CONTROL, MY DEAR MR. CHAIRMAN: 1. The Committee on Flood Control of the House of Representatives, by resolution adopted January 21, 1944, requested the Board of Engineers for Rivers and Harbors to review the prior reports on Skagway River and Harbor, Alaska, with a view to determining whether any modifications of the recommendations contained therein should be made at this time for flood control and navigation. I enclose the report of the Board in response thereto. It is also in review of the reports of the district and division engineers on preliminary examination and survey of Skagway Harbor, Alaska, authorized by the River and Harbor Act approved March 2, 1915. 2. After full consideration of the reports secured from the district and division engineers, the Board recommends that the existing project for Skagway Harbor, Alaska, be modified to provide for (1) restoration of the existing breakwater to the original project cross-section and construction of a 300-foot extension thereto and of two groins on its riverside; (2) reconstruction and extension of the dike adjacent to the city; and (3) reconstruction of the existing dike at the sanatorium, all in general accordance with the plans of the district engineer and with such changes therein as in the discretion of the Secretary of War and the Chief of Engineers may be advisable, at an estimated cost to the United States of $438,000 for new work and $10,000 annually for maintenance in addition to that now required; subject to the condition that responsible local agencies furnish assurances satisfactory to the Secretary of War that they will (a) provide without cost to the United States all necessary lands, easements, rightsof-way, and quarry rights; (b) hold and save the United States free from damages due to the improvements; and (c) in lieu of maintenance of the project dike and breakwater extension theerof, will contribute $500 annually toward maintenance of the reconstructed and extended city dike and harbor breakwater. 3. After due consideration of these reports, I concur in the views and recommendations of the Board. Very truly yours, R. A. WHEELER, WAR DEPARTMENT, BOARD OF ENGINEERS FOR RIVERS AND HARBORS, Subject: Skagway River and Harbor, Alaska. 1. This report is in response to the following resolution adopted January 21, 1944 : "Resolved by the Committee on Flood Control, House of Representatives, 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 prior reports on Skagway River and Harbor, Alaska, with a view to determining whether any modifications of the recommendations contained therein should be made at this time for flood control and navigation." It is also in review of the reports of the district and division engineers on preliminary examination and survey of Skagway Harbor, Alaska, authorized by the River and Harbor Act approved March 2, 1945. 2. Skagway Harbor, Alaska, is in a small indentation on Taiya Inlet at the mouth of Skagway River 953 nautical miles from Seattle, Wash. At the harbor, material carried by the river has formed a tidal shelf extending from the line of mean higher high water seaward about 2,000 feet. A rock breakwater on the east side of the river, constructed to confine the future deposit of river-borne material to the west side of the indentation, extends nearly across the tidal shelf. The harbor is east of the breakwater. On the east side of the harbor is the terminal wharf of the railroad serving the area which has depths along its outer 1,450 feet ranging from over 40 to 21 feet. Beyond is an oil-tanker berth and in the shelf area are two barge landings and two smallboat moorings. The diurnal range of tide is 16.6 feet. 3. Skagway River drains 126 square miles of mountainous area, flows in a narrow canyon and is not navigable. The lower 4 miles of the canyon floor, 800 feet wide at the upper end and 3,000 feet wide at the mouth, is a delta formed of silt, sand, slate particles, and boulders. Most of the lower half of the delta consists of about 280 acres on the east river bank occupied by the city of Skagway including an airport and at its upper limits the railroad shops. Upstream, the delta land is mostly west of the river and occupied by a gasoline storage tank farm, a mission farm of about 40 acres mainly pasture and brush, and 1.5 miles above Skagway by a former Army hospital which has been recently transferred to the Alaska Native Service of the Department of the Interior and is now used as a tuberculosis sanatorium. From the Twenty-third Avenue Bridge at Skagway, about 1.5 miles above the river mouth, a graded road extends to the sanatorium. 4. Skagway had a population in 1940 of about 630 and is the only settlement within the basin. The port serves an extensive area in Alaska and Canada in which the principal resources are furs, minerals, and oil deposits. Gold mining has been the chief normal-time occupation. There are no large industries. Skagway is the northerly terminus of the inside passage ship route to Alaska, the ocean terminus of the White Pass & Yukon Route Railroad which extends 111 miles to Whitehorse at the head of navigation on Yukon River in Canada and the terminus of the pipe line through which gasoline can be pumped in either direction between Skagway and Whitehorse. It is essentially a transfer point between water and land transportation. Short highways connect the city with scenic and historic points and the area attracts many tourists. Seaplanes use the harbor. During the 7 years immediately preceding the war, the port commerce averaged about 30,000 tons and 21,000 passengers annually and in the war year of 1943 increased to about 276,000 tons. In 1941, vessels drawing up to 28 feet used the harbor for 222 round trips and the locally-owned small boats numbered about 40. The commerce includes a variety of items, but the principal peacetime commodities are petroleum products, coal, vegetablefood products, lumber and ores, metals, and manufactures thereof. 5. In view of the gradual building up of the river bed, which has now reached an elevation approximating that of the adjacent city area, and filling of the harbor area by river-borne 'material. Congress in 1938 authorized construction of a training dike on the east bank of the river extending 6,700 feet downstream from Twenty-third Avenue and 1,800 feet of stone breakwater in prolongation thereof, at an estimated cost of $105,000, provided local interests, furnish rights-of-way including quarry rights, save the United States free from resulting damages and agree to maintain the structures after completion. This work for preservation of the port was completed in 1940 at a cost, all for new work, of $62,173. The project was modified in 1945 to provide for dredging at the face of the railway wharf to a depth of 30 feet for 700 feet and 20 feet for 100 feet and dredging a small-boat basin 8 feet deep over an area of 1 acre provided local interests provide mooring floats and a protective breakwater 200 feet long and save the United States free from claims for damages. No work has been accomplished under this modification. Sections of the training dike and breakwater were either wholly or partially destroyed by floods in 1943 and 1944. They were partially repaired by Army personnel with civilian aid and by expenditure of $48,000 under provisions of the act of July 12, 1943. In addition flood control under supervision of the Northwest Service Command has included construction of gravel fill rock faced dikes 4,200 feet long at the sanatorium, 1,800 feet long at the tank farm, 400 feet at the west abutment of the Twenty-third Avenue Bridge, and 1,400 feet long at the railroad shops upstream from Twenty-third Avenue. The latter with a rock-filled crib constructed by the railroad many years ago and the project-training dike provides a continuous line of protection for the city. Other flood-control work by local interests has been minor. The crest of the existing project dike is only about one-half foot above the flood stage reached in 1943. To afford secure protection it needs to be increased in height and strengthened particularly against undermining. This need for increased height and strengthening applies generally to the existing flood dikes in other locations and the railroad timber crib dike is insecure in view of its age and has objectionable alinement. 6. Floods at Skagway occur principally in October, and September, and in the spring and result from heavy rains accompanied by snow melt. Unless the river discharge reaches about 15,000 cubic feet per second very little flood damage results. The district engineer estimates that peak discharges of that amount or greater may be expected on an average of once in 7 years and floods of 30,000 cubic feet per second or greater once in 15 years. The worst floods of record at Skagway were those of 1943 and 1944 with estimated discharges of 35,000 and 30,000 cubic feet per second respectively. In addition to damaging the project dike and breakwater permitting debris to reach the harbor area, the flood of 1943 damaged the hospital buildings, undermined two petroleum tanks, destroyed buildings and washed away or deposited debris on lands at the mission from, caused railroad track wash-outs at several points, damaged the Twentythird Avenue Bridge, and destroyed a footbridge, resulting in estimated damages totaling $235,000. Emergency dike work prevented flooding the city and averted much greater damages. Average annual flood damages are estimated by the district engineer at $14,800 at the city, $4,100 at the sanatorium and $6,340 in other areas, a total of $25,240. 7. Local interests desire restoration and extension of the existing breakwater, strengthening of the existing project dike and its extension upstream so as to protect the railroad-shop area and replace the existing log-crib dike and claim that these improvements are. necessary to preserve the city and harbor. They offer to furnish rights-of-way including quarry rights and to pay $500 annually toward maintenance of the entire improvement after completion if modified as desired. The existing project requires that they maintain the existing works, but the city states that it is financially unable to restore the improvements. Local interests also renew their request for the authorized dredging at the wharf and for the small-boat basin with protective breakwater. However, they offer no local cooperation for this work, advise that local funds are not available for construction of the breakwater as required under the existing project, and express the view that since the harbor is in federally controlled territory local interests should not be expected to bear any of the construction or maintenance cost. The Alaska Native Service requests more adequate flood protection for the sanatorium and local interests advocate flood protection by adequate dike construction for the west-bank area extending from the Twenty-third Avenue Bridge to the canyon wall above the sanatorium. No offers of local cooperation for work west of the river have been received. 8. The district engineer finds no sufficient reason for any reduction in the requirements of local cooperation for the authorized small-boat basin and insufficient benefits to justify providing additional protective works for the mission farm and tank farm. He presents a plan providing for (a) restoring the project breakwater to its original cross-section, adding two wedge-shaped rock groins thereto to protect and strengthen it, and extending the breakwater 300 feet seaward; (b) increasing the height of the existing project dike to provide a freeboard of 3 feet above the 1943 flood, lowering and reinforcing the toe to protect it from undermining and extending it from Twenty-third Avenue to connect with the railroad track fill above the city so as to provide a continuous welllocated line of protection for the city and to supersede the insecure existing rock cribs above the railroad shops; and (c) strengthening with armor rock and raising the sanatorium dike to a height of 3.5 feet above the flood of 1943. The district engineer estimates the construction cost for the work described in (a) and (b) to protect the city and harbor at $305,000, and for the sanatorium dike at $73,000 a total of $438,000. He estimates the average annual cost for the city and harbor work at $29,450 of which $8,500 is for maintenance including a contribution of $500 annually by the city which he believes is the maximum that local interests will be able to contribute for some time. He estimates the annual cost for the sanatorium dike at $6,190 including $2,000 for Federal maintenance. In his opinion the described work for the harbor, city, and sanatorium should also be provisional upon local interests furnishing free of cost to the United States all necessary quarry rights and rights-of-way and assurances that they will hold the United States free from claims for any damages attributable |