MY DEAR GENERAL, WHEELER'. By letter dated February 13, 1948 (file ENGWF), General Crawford transmitted for the information and comments of the Department of the Interior your proposed report on flood control and other purposes in central and southern Florida, together with reports of the Board of Engineers for Rivers and Harbors and of the district and division engineers. I am also advised that in view of the urgent need for the flood protection and. water control contemplated in the report that it has been submitted to the Bureau of the Budget, and, in view thereof, a copy of this letter is being sent to the Director of that Bureau.

Opportunity to review your report under the provisions of Public Law 732, Seventy-ninth Congress, and in accordance with established procedures regarding coordination between Federal agencies, is greatly appreciated, since the proposal report affects the interests of the Bureau of Indian Affairs, the -National Park Service, and the Geological Survey, as well as the Fish and Wildlife Service. In this connection, it is noted that in the preparation of the district engineer's report a high degree of cooperation has been received from agencies of the Department at field level which has been of material assistance to the Corps of Engineers in the preparation of the plan of improvement. Benefit of close cooperation at regional level has also accrued to agencies of the Department and as outlined hereafter it seems evident that as plans for development are perfected, the closest cooperation should be maintained at regional level in order that certain of the proposals for development as they may affect ' the interests and obligations of interested agencies of this Department may be mutually agreed upon. To that end the views and recommendations of the various agencies are set forth rather specifically herein.

The National Park Service concurs in the general program outlined.

in your report and its objectives, in so far as the Everglades National Park is concerned, the main points for consideration are the maintenance of an adequate level of fresh ground water to prevent salt-water

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encroachment which would change the environment for wildlife, as well as the vegetation; and the critical need for maintaining a reasonably large supply of fresh water so that disastrous fires may be pre--vented, especially during the hazardous season between October and May when rainfall is low. Periodical flooding has always even a natural occurrence in the region of the park; it is essentially a water park. Basically, therefore, as concerns the National Park Service, the question is not one of too much water, but a guaranty that there shall not be too little.

The Everglades National Park has been established so recently that the National Park Service has had neither time nor resources to make studies as to the actual effect of the project on the park or as to the best means whereby the project may be made to contribute to the preservation of the park in its natural state, in accordance with the expressed will of the Congress.

Your report proposes that in dry periods water would be released from proposed conservation areas into the Everglades National Park which would assist in reducing fires and other damages which accompany periods of drought. It also provides for spillways along the Tamiami Canal. As stated, the floodwaters ,would not ordinary do as much damage to the park as reduction in dry season flows. However, it is essential that the release of floodwaters be adequately distributed to the natural drainage of the park so that no artificial drainage facilities will become necessary, and so that no more of the natural habitat for the wildlife be flooded than in the past.

The National Park Service concurs in this objective of the plan but advises that insufficient data are available at this time to enable the Service to determine what water-control structures would be necessary to facilitate the release of stored water into the park during dry periods and the distribution over the park of the water released or spilled. Your report does not state what definite regulations would be promulgated to insure the release of such waters.

Specifically, the Everglades National Park is a unique park area set aside by the Congress to be preserved in its  natural state. If the flood-control project is to contribute to this end not adversely affect it, it seems imperative that, the details of the plan as it may affect the park be jointly worked out by the Corps of engineers and the National-Park Service.

The point of view of the Bureau of Indian Affairs is somewhat different than that of the National Park Service in that it favors proposals or programs whereby flooding may be reduced on reservation lands Or lands specifically set aside for the beneficial use of the Seminole Indians.

The Bureau approves the construction of a levee approximately parallel to the shores of Lake Okeechobee extending from Kissimmee River to Fish eating Creek with extensions along either bank of the Indian Prairie and Harney Pond Canals with adequate outlets for local drainage and control works for dry periods. The Bureau believes that this protective work and. canal improvements for water control will greatly benefit ~he 35,800 acres of grazing and agricultural lands on the Seminole Indian Reservation in Glades County where the Bureau of Indian Affairs is endeavoring to rehabilitate the Florida Seminole Indians.

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On the other hand, the Bureau of .Indian Affairs .protests the proposed plan of developing a water conservation area in Broward County which would take in all of the State Seminole Indian Reservation consisting of 104,800 acres. It is pointed out that these lands were specifically set aside for the beneficial use of the Seminole Indians by the State of Florida, and that if the proposed plan is carried through it will deprive the Seminoles of a valuable grazing and hunting area.

During dry periods, from about December through May, the/Juneau of Indian Affairs has secured benefits from these lands in Broward County by grazing several hundred of the Seminole cattle, a part of the herd being developed on the Hendry County Reservation. It appears that if this area is turned into a water conservation area. the Seminoles would lose grazing benefits and all big game would be driven from the area.

Recommendations have been made heretofore at regional level by the superintendent of the Indian Agency at Fort Myers through advisement of the district engineer at Jacksonville, Fla., of the plans regarding the development and protection of the Big Cypress Reservation and the State Indian reservation from floodwaters; also long-range plans for developing a livestock program for the Seminole Indians of Florida. He recommended that a canal and dike be constructed running north and south along the Collier-Broward County line which would help to protect the lower sections of the Federal reservation in Hendry County from floodwaters.

It is further recommended that a plan be devised to protect the State Indian reservation from flooding by either locating the proposed north-south canal 6 miles farther east or by some other means so that the Seminoles would not lose the use of thence lands which are badly needed for their livestock operations. If the canal is constructed as proposed along the Collier-Broward County line, it will be necessary to provide a stock driveway over the canal so that the Indians can reach the State Indian reservation lands during the winter grazing season.

The Fish and Wildlife Service has heretofore furnished two reports to the district engineer. The first, submitted on October 31, 1947, was a preliminary evaluation report on the Everglades drainage and flood-control project, and the second, submitted December 18, 1947, was a preliminary evaluation report on the central Florida drainage and flood-control project. The Fish and Wildlife Service advises that these two reports were both of a preliminary nature and both prepared in the relatively short time between October 9, 1947, and December

The Fish and Wildlife Service finds that on review of the comprehensive report three points are not clear and require amendment as follows.

3. Paragraph 48, should state that

Aside from the points mentioned above, the Fish and Wildlife Service advises that the report considers fish and. wildlife as adequately as it can in light of the preliminary, nature of the Service's findings. It is requested, however, at such tune as the definite project reports may be prepared, that the Fish and Wildlife Service be given an opportunity to recommend measures to insure minimum damage to, and maximum benefits for, wildlife resources.

In addition to specific recommendations outlined heretofore, your report brings up certain questions relating to the water investigational program of the Geological Survey, particularly in the Everglades and the lower east coast of Florida. The investigations in these areas, being cooperative in nature, are supported in part by funds from several State agencies and municipalities and are for the purpose of providing water data for a substantial number of activities of local, as well as Federal interests. It is considered highly important that such investigations be assured not only continuity but proper expansion leading up to a well coordinated network of water measurements. ground-water observation, and chemical sampling stations, which are adequate for all future needs. Such a well-balanced program is also of value to the regional activities of the National Park Service, the Fish and Wildlife Service, the Bureau of Indian Affairs, as well as for your program.

It is apparent that the characteristics of the waters with respect to their occurrence, movement, and quality, will be appreciably changed by the proposed flood control and other works in southern Florida. The definition of these characteristics is being accomplished by the Geological Survey largely in cooperation with a considerable number of State and municipal agencies and in some part through the transfer of funds to the Geological Survey by the Corps of Engineers. This joint and well-coordinated undertaking has developed basic water data of value, not only to your agency in its proposed plan but to the bureaus of the Department. heretofore enumerated and to bureaus of other Federal agencies. The data are also vital to the non-Federal development in the area fields, such as irrigation, municipal, and industrial water supply, and highway drainage and design.

The assurance of continuity in the Geological Survey's program of basic, water investigations is made the more important by the proposed flood-control program. The past records of stream and canal flow, water-table elevations and variations in chemical quality would, in many areas, remain of value only as records of the antecedent conditions. The new characteristics produced by the proposed physical works would necessarily be redefined in order to determine the availability of water under all conditions of flood and drought for the many interested parties and the numerous activities referred to above.

I have no reason to believe but that the Corps of Engineers will recognize the responsibilities of the Geological Survey to the large number of Federal, State, and municipal agencies in the continued

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REPORT OF THE CHIEF OF ENGINEERS, UNITED STATES ARMY

2. This report has been made in response to authorizations in various flood-control and river and harbor acts of Congress, and in response to resolutions of appropriate congressional committees, which provide for preliminary examinations and surveys of rivers, lakes, and canals in the upper St. Johns, Kissimmee, Lake Okeechobee-Caloosahatchee, and Everglades drainage areas. The problems of flood protection, drainage, and water control in these areas are physically interrelated, and the areas form a single economic unit.. Accordingly, a single comprehensive survey has been made in response to the congressional authorizations, and- the resulting unified plan of improvement is presented in this report.

3. The area under consideration embraces some 15,570 square miles in central and southern Florida. Development and settlement of this area h~ progressed in spite of the 6ifficulties inherent in a land where there is either too much or too little water, according to variations of the seasons and changes from year to year. Hurricane-driven floods of 1926 and 1928 resulted in he loss of some 2,500 lives in the area around Lake Okeechobee, producing one of the greatest disasters in the histor7 of this Nation. The existing Federal project for flood control and navigation on Lake Okeechobee and its outlets has afforded a high degree of protection against a repetition of such a disaster. In addition, numerous drainage and flood-control works constructed by local interests have been instrumental in bringing the area to its present degree of development. However, the problem of "too much water" has not yet been solved, as the recent flood of 1947 caused damages estimated at $59,000,000, during the summer

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9. The comprehensive plan of improvement presented in this report is a long-range plan for development by progressive stages over a period of time, but its benefits will accrue proportionately as successive features of the plan are completed. The Board of Engineers for Rivers and Harbors finds that the first phase of the project should be construction of the principal structures required for protection of the east coast area and the principal works necessary to control lake levels and reduce flood damage in the improved area south of Lake Okeechobee. The estimated cost of this first phase is $70,000,000. Local interests have stressed their need for immediate protection against repetition of a flood such as that of 1947. Initiation of the first phase will begin to provide that immediate relief and completion of this phase will afford a substantial part of the necessary flood protection for present developed areas.

10. The Board of Engineers for Rivers and Harbors has given careful consideration to the procedure for maintenance and operation of this

project. I am in full agreement with the view of the Board that maintenance and operation should be by local interests at local cost, except for maintenance and operation of specified major protection and control works which should remain a Federal responsibility. 

13. The district engineer's plan and report have also been coordinated with other Federal agencies which have an interest in this area. The framework of the plan itself has been established in conformity with the investigations and soil surveys made by the Soil Conservation Service of the Department of Agriculture in cooperation with tile United States Geological Survey and State of Florida. The regional office of the Fish and Wildlife Service of the Department of the Interior has assisted the district engineer with suggestions which have been incorporated into the plan of improvement, and has furnished estimates of benefits that will accrue from preservation of fish and wildlife resources. The office of Indian affairs for the State. of Florida has endorsed the proposed plan of improvement and recognized its beneficial effects upon Seminole Indian Reservation lands. The superintendent of the Seminole Indian Agency has also pointed out that certain other lands, held in trust by the State of Florida for the Indians, have been included within the limits of conservation areas, and has requested revisions with respect to these lands. In this connection, it is my understanding that adjustment for use of these lands is properly a matter between the State of Florida and the Indians. Consequently, the State should give proper consideration to such lands in its action in providing lands for the project. The plan of improvement has also been developed in full recognition of the importance of the Everglades National Park which has been established recently at the southwestern tip of the Florida peninsula. Release of water from conservation storage will assist in restoring and maintaining natural conditions within the national park area, by reducing damage from drought and fire which have threatened the preservation of lands, vegetation, and wildlife.

14. In summary, I conclude that the comprehensive plan of improvement presented by the reporting officers, and recommended by

the Board of Engineers for Rivers and Harbors, provides the basic framework for a practical and permanent solution of the problems of flood protection and water control in central and southern Florida. The mild climate and inherent fertility of this area make inevitable its continued development. Under the disruptive influences of flood and drought, this development will go forward in a haphazard manner, with eventual loss of irreplaceable resources of water and soil. The existence and functioning of the proposed plan of improvement will remove these hazards and provide the pattern for progressive protection and development. Since the area is unique in its combination of a semitropical climate with fertile soil and abundant water, it represents a national asset which should be protected and assured an orderly development for the use of present and future generations. In addition, flood protection and major drainage improvement are urgently needed as an emergency measure.

15. The comprehensive plan of improvement as a whole should be adopted by the Congress, as such approval will permit planning of individual features to proceed in a logical manner and will enable the Corps of Engineers to work out remaining details in coordination with the State or local agency concerned. The first phase of the improvement with an estimated cost of $70,000,000 should be undertaken at the earliest possible date as a matter of great urgency.

R. A Wheeler

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THE BOARD OF ENGINEERS FOR RIVERS AND HARBORS

Subject: Central and southern Florida.

To: The Chief of Engineers United States Army.

1. This report is in response to the following resolutions adopted May 29, 1940, October 23, 1945, October 24, 1945, May 28, 1946, June 19, 1946, and July 5, 1946:

It is also in review of the reports on preliminary examination and survey of Kissimmee River Valley and its tributaries, Florida, author-

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Florida, for drainage improvement and flood control along North New River Canal in Broward County, Fla., authorized by the Flood Control Act approved July 24, 1946.

2. Tile streams covered in these authorizations drain a relatively fiat area of 15,570 square miles in central and southern Florida anti have interrelated problems of flood control and drainage. The St. Johns headwaters area consists of lakes, marshes, and prairie lands at elevations from 22 to 24 feet above sea level, parts of which, with varying degrees of saturation and winds, drain either westward toward the Kissimmee River, r, southward toward the St. Lucia River, or northward through the St. Johns River. The Kissimmee River Basin comprising an area of 4,375 square miles, is generally fiat with a gentle slope southward toward Lake Okeechobee, and is dotted with shallow lakes and interconnecting sloughs and channel~. The river has its source in several small streams near the city of Orlando at elevation 60 and flows southward through Lake Kissimmee at elevation 52 and through the fiat prairie lands south of the lake to empty into Lake Okeechobee, a nearly circular body of fresh water, 730 square miles in area. Lake Okeechobee originally had a surface elevation ranging from about 12 to 19 feet above mean sea level. It had no well-defined outlet. At the higher levels water from the lake would spread over the vast Everglades area to the south or spill slowly into the fiat areas to the west of the lake to reach the Caloosahatchee River, or escape through seepage and overland flow to various sloughs to the east. Control of the lake has been obtained by the construction of levees along the south and east shores, and by outlet canals connecting the St. Lucie River and several other small streams on the Atlantic coast and the Caloosahatchee River on tile Gulf coast. Lake level is maintained insofar as possible between 12.56 and 15.56 feet above mean sea level. The Everglades, a grassy marsh roughly 40 miles wide and 100 miles long, extends from the lake southward to the sea at the southern end of Florida. Water from the lake originally, entered the area by seepage and overflow, and together with the rain water that fell over the area, flowed slowly through the grass and other vegetation to escape eastward and ~southward to the sea through same streams along the,. coast. The strip of sandy land, 5 to 10 miles in width, containing the highly developed recreational and agricultural areas along the Atlantic coast, forms the eastern border of the Everglades.

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657,000 acres of developed and potentially productive agricultural land south of the lake. The plan contemplates formation of a con-' servati0n area, comprising approximately 1,500 square miles generally south and east of the agricultural area, by the construction of impounding levees. The levee on the east side would prevent overflow from the Everglades into the coastal area. Maintenance of water in the conservation area would provide a supply for use in the east-coast agricultural lands when needed, raise the ground-water table, improve water supply and ameliorate salt-water intrusion in the east-coast water supply well fields and streams, and benefit fish and wildlife in the Everglades. Improvements in the coastal area would result in flood protection and better drainage for communities and agricultural lands.

9. The cost of the comprehensive plan is estimated as $208,135,000 of which $200,193,000 is for construction and $7,942,000 for lands and rights-of-way. Annual maintenance and operation is estimated as $3,703,000. Annual charges arc estimated to total $11,943,000 and annual benefits $24,573,000. The ratio of benefits to cost is 2.05. The district engineer is of the opinion that the plan proposed provides for the most {'feasible and economical solution of the flood control and related water problems in central and southern Florida and that it should be adopted to provide the flood protection urgently needed, and as a long-range plan for control and use of the water resources of the area. In view of the large benefits from land improvement, estimated as $15,855,000 per year, he believes that local interests should be required to make a cash contribution of $29,152,000 toward the initial cost of the project and in addition provide without cost to the United States, all lands, easements, and rights-of-way necessary for the construction and operation of the project and bear the cost~ of maintenance and operation of all features except that the cost of maintenance and operation of the control works, levees, channels, and navigation locks of the St. Lucie Canal, Lake Okeechobee, and Caloosahatchee River should continue to be borne by the Federal Government. As coordinated operation of certain major features of the plan would be essential; He believes that the Federal Government should maintain and operate, at local cost, levees, canals, pumping stations, and control works, not essentially of a local character, in cooperation with appropriate State and local agencies.

10. He accordingly recommends modification of the existing Federal project, for Caloosahatchee and Lake Okeechobee drainage areas to provide for the comprehensive plan for flood control and other purposes in central and southern Florida,-as proposed in his report at an estimated Federal cost of $171,041,000 for construction and $669,000 annually for maintenance and operation, Provided: That the Federal Government operate and maintain certain works subject to the condition that local interests pay the cost; that local interests furnish assurances that they will provide all lands, easements and rights-of-way and will pay such cash contributions as may be required; and hold and save the United States free from damages due to the construction works. The division engineer concurs in the recommendation of the district engineer.

12. The comprehensive plan of improvement proposed by the reporting officers provides' flood protection for agricultural and grazing lands and for the important east-coast urban areas of Florida. In addition it provides for drainage and water control of vast areas of developed and potential agricultural lands. The need for flood control is clearly indicated by the extensive damage from the flood in 1947 alone, which amounted to $59,000,000. Farming of the fertile lands of the Everglades has been attempted on a relatively small scale and has proved to be successful in those portions where water-control facilities have been installed. The extension of this agricultural development to additional suitable areas ~'ill benefit both local interests and the Nation as a whole. Its accomplishment requires a carefully planned system of major drainage, and water and flood-control improvements.

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upper St. Johns and Kissimmee areas should also be included in this phase.

14. The lands on Kreamer, Ritta, and Toffy Islands in Lake Okeechobee are subject to inundation and excessive seepage at times of high lake levels, but they cannot be protected adequately at reasonable cost. The Board recognizes, however, that these islands while small in area are rich and productive for agricultural use, and believes that they can continue to be farmed profitably at the risk of local operators. Consequently. the Board recommends that no ,provision be made for the protection or abandonment of the islands in Lake Okeechobee and that local interests be permitted to make such use of these islands as they may desire at their own risk.

15. The plan proposed by the district engineer will cost $208,135,000 for construction and $3,703,000 annually for maintenance and operation. Benefits from prevention of flood damages are estimated at $8,251,000 per year, from improvement of property at $15,855,000, from navigation at $176,000, and from preservation of fish and wildlife at $291,000, a total of $24,573,000 annually. The Board concurs with the district engineer that, in view of the large local benefits, local interests should be required to participate in the construction to the extent of furnishing all lands and rights-of-way and making a cash contribution of $29,152,000. As 'the construction work will extend over a long period of years the lands and fights-of-way should be furnished as and when needed. Contributions likewise should be required from time to time as the work progresses. It is felt that the additional investigations and the preparation of detailed plans for construction work should be undertaken by the Federal Government without local interests being required to contribute toward the cost, but for any part of the work carried to the construction stage a contribution should be required, prior to construction, in the amount of 15 percent of the construction cost, which is the approximate relation to the total contribution no ed above to the total construction cost less the amount required for advance planning, lands, and rights-of-way.

16. The Board is of the opinion that the principal control and protection works of the plan should be maintained and operated by the Federal Government at Federal cost. These include the levees. channels, locks,' and control works of the St. Lucie Canal, Lake Okeechobee, and Caloosahatchee River, and the main spillways designed for control of water levels in the conservation area. The average annual cost of maintenance and operation of these improvements is estimated as $749,000. which includes $326,800 for maintenance and operation of the existing Federal works. The remainder of the improvements should be maintained and operated by local interests at local cost.

17. The Board recommends modification of the existing Federal project for the Caloosahatchee and Lake Okeechobee drainage areas to provide for further improvement in the interests of flood control, drainage, and related purposes, generally in accordance with the district engineer's comprehensive plan for flood control and other purposes in central and southern Florida, with such modifications thereof as in the discretion of the Secretary of the Army and the Chief of Engineers may be advisable, at an estimated cost to the United States of $171,041,000 for construction and $749,000 annually for 

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maintenance and operation, subject to the conditions that local interests shall provide all lands, easements and rights-of-way; make a cash contribution of 15 percent of the estimated construction cost for each part of the work prior to its initiation, except that the total cash contribution for the comprehensive project shall not exceed $29,152,000; and furnish assurances satisfactory to the Secretary of the Army that they with hold and save the United States free from damages due to the construction and operation of the works and that they will maintain and operate all the works after completion in accordance with regulations prescribed by the Secretary of the Army, except the levees, channels, locks and control works of the St. Lucie Canal, Lake Okeechobee, and Caloosahatchee River and the main spillways of the conservation areas.

For the Board:

R. C. CRAWFORD,

• -Major General,

To: The Chief of Engineers, United States Army (through the division engineer, South Atlantic Division).

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and with several resolutions of appropriate congressional committees,. and which request reviews of previous reports on the Caloosahatchee River and Lake Okeechobee drainage areas with a view to determining whether the existing Federal project should be modified. These specific congressional authorizations are listed in appendix A. Since the several authorizations cover the entire area of central and southern Florida which has interrelated flood problems, the district engineer has been authorized to cover these authorizations in a single comprehensive survey report.

2. Scope--(a) The flood problems of central and southern Florida are closely interrelated with the development .If water and land resources of the entire area; this report therefore~ considers all related problems of water control and use. Such a comprehensive approach was authorized by the Chief of Engineers as a result of numerous con-conferences held in 1946 and 1947 and was confirmed by letter of November 14, 1947.

(b) This authority permitted the district engineer to cover in his surveys the geographical area necessary to insure a coordinated study of the problems as a whole from an engineering and economic standpoint, within the limits of congressional authorizations for examinations and surveys. As a result, the survey and report in its geographical scope covers that part of central and southern Florida lying generally south of the latitude of Cape Canaveral and east of the divide which separates drainage into° the Atlantic from that flowing to the Gulf of Mexico.

(c) In its scope the comprehensive plan presented in this report is modification and extension of the existing Federal project for improvement of the Caloosahatchee River and Lake Okeechobee drainage area, originally authorized by the River and Harbor Act of July 3, 1930.

(d) Prosecution of the survey and preparation of this report has been based upon voluminous records of previous surveys and studies made by the Corps of Engineers, supplemented by additional field surveys and investigations, hydrographic studies, aerial mapping, and flood-damage surveys to bring the basic physical '~l and economic information up to date. Full use was made of the studies and reports of other Federal agencies, such as the Soil Conservation Service of the Department of Agriculture. the United States Geological Survey of the Department of the Interior:', and the Florida Geological Survey. In addition, a great mass of basic information was available from the reports and records of the Everglades drainage district of the State of Florida, and from counties, subdrainage districts, and other local agencies.

3. Prior reports.--(a) Early reports: The rivers, lakes, and marsh-lands of central and southern Florida, .and particularly the region known as the Everglades, have been the subject of a large number of studies, surveys, and reports by Federal and local agencies for 100 years. This interest in the problems of control of the waters and use of the lands of the area began in 1847-48 with the preparation of the first report on the entire Everglades area by Mr. Budengham Smith, an agent appointed by the Secretary of the Treasury to procure authentic reformation in relation to what are generally called the 'Everglades' on the peninsula of Florida." More than half a century

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(b) Current reports: When the seriousness and scope of the flood control and major drainage problems in this area were emphasized by the disastrous hurricanes and floods of 1926 and 1928, additional surveys by the Corps of Engineers of the War Department resulted in the report of March 15, 1930, on the Caloosahatchee River and Lake Okeechobee drainage areas, published as Senate Document No. 115, Seventy-first Congress, second session, on which congressional authorization of the existing project for flood control and navigation was based. More recent studies and reports of the Corps of Engineers have resulted in certain modifications of the project, and in the procurement of a large amount of engineering and economic information of basic value in the solution of the problems of the area.

(c) The prior reports and studies, both published and unpublished; which have been utilized in preparing this report, are listed m appendix

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a tortuous channel interrupted by a number of lakes until a more definite channel develops below Lake Harney. The part of the St. Johns River considered in this report is that lying south of Lake Harney. The southern part of this fiat area merges imperceptibly with the drainage influence of the North Fork of St. Lucie River, the channel of which is not well defined until near its tidal outlet. At the extreme southern end of the area and across the course of the present St. Lucie Canal lie the Allapattah Flats, a slough which originally connected with the waters of Lake Okeechobee by seepage or overland flow.

6. The uniformly flat lands of this entire area are without predominant slope. They are generally grassy prairies through which streams and sloughs meander. The northern or upper St. Johns River section is practically treeless except on the sides of the basin, and growths of pine, other timber, and densely wooded marshy areas are to be found in the southern part toward Allapattah Flats and the St. Lucie River. The soft of the area is generally sand and clay with some extensive muck lands, all of which is underlain by sedimentary deposits of various limestones.

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Extensive cultivated areas lie along the western border of the basin and the Lake Istokpoga section. However, aside from scattered 'areas and hammocks of pine, oak, cypress, and cabbage palms, the level expanse south of Lake Kissimmee consists of prairie grasslands, with some areas of sawgrass and palmetto.

10. Lake Okeechobee and its outlets.--Lake Okeechobee which receives most of the waters which accumulate in the Kissimmee Basra and connected areas, lies about 30 miles from the Atlantic coast and 60 miles from the Gulf of' Mexico. It is a large, roughly circular fresh-water lake about 730 square miles in area. Much of it is very shallow, and the deepest parts extend only to about sea level. The average elevation of Lake Okeechobee is about 13 feet mean sea level.

11. In its former natural state Lake Okeechobee had no well-defined outlet; its rising waters would spread over the vast Everglades area to the south, or spill slowly into the fiat areas west o! the lake and find their way to the Caloosahatchee River, or escape by seepage and some overland flow to the Allapattah, Hungryland, and Loxahatchee Sloughs to the east.

12. Under present conditions Lake Okeechobee has been impounded by levees which block escape of its waters into the Everglades; present outlets are the St. Lucie Canal and the Caloosahatchee River which have been constructed 'and improved to afford a continuous navigable channel across the State and to provide a measure of control of lake levels.

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which rises to an elevation of about 25 feet above sea level and embraces the areas known as the Devil's Garden and Big Cypress Swamp.

15. The continuous growth and decay of the sawgrass and other vegetation over long periods of geologic time has resulted in the deposit of peaty muck which now composes the soil of the Everglades. Present general elevation of these muck. lands at Lake Okeechobee averages about 17 feet above mean sea level, while at the latitude of Miami the ground surface of the Everglades is only from 6 to 7 feet above sea level. From that point it slopes imperceptibly to the mangrove and salt marshes at the end of the peninsula. The depth of the muck over the rock decreases generally from about 8 to 14 feet at Lake Okeechobee to about 1 foot in the latitude of Miami. The soil and geology of the Everglades have been described and investigated in detail by the Soil Conservation. Service of the Department of Agriculture in its report of 1947.

16. The original condition of the Everglades has been greatly altered by the development of drainage and flood-control works, first by State and local interests and later by the Federal Government. At present that portion of its mucklands, which has been afforded a degree of drainage and protection, constitutes one of the richest agricultural areas in the world. The problems of water control over this, unique area, however, have not yet been solved and are considered in detail in this report.

17. The coastal areas.--In West Palm Beach, Broward, and Dade Counties the coastal ridge which Forms the eastern border of the Everglades is a strip of sandy land varying from 5 to 10 miles in width. It is in general a highly developed urban and a cultural area. South of Miami in Dade County this coastal area widens as the Everglades bend to the west to include a newly developed, rich agricultural area that extends almost to the southern coast. Streams and artificial drainage channels in this area are short and flow directly into the coastal lagoons which follow this entire coastline from Lake Worth to Biscayne Bay. The generally low elevation and fiat topography of most of the coastal area results in slow run-off of excess water and in generally poor natural drainage. Heavy and prolonged rainfall accumulates and stands for long periods on much of the land unless removed by drainage works; this frequent flooding has been and is one of the greatest handicaps to full development of the potentialities of the area. During the summer and fall of 1947 most of the land in the area was submerged by the worst such flood in many years. This condition will be discussed in more detail later in this report.

iii. ECONOMIC DEVELOPMENT

18. General.--The area under consideration in this report has developed in the past 50 years from an almost unknown wilderness. It contains some of the richest and most productive agricultural areas in the United States. In spite of this advance in economic status and its great future potentialities, large parts of this area remain thinly populated and undeveloped. Details regarding the economic development of this area are set forth in appendix B and are summarized m the following paragraphs.

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19. Population.--The resident population of the 18 counties included in or tributary to this area has increased from 367,219 in 1930 to 727,097 in 1945 (appendix B).~ These figures do not include winter residents and tourists who double the population of east coast centers during the winter season, or migratory workers who greatly increase the population of the Lake Okeechobee area during the period of heavy crop production, which is also in the winter. As a general rule, the bulk of the permanent population is concentrated along the east-coast ridge and the eastern margin of the Everglades, and around Lake Okeechobee and on the borders of the Kissimmee River Basin. Wide interior areas are devoted largely to pasture lands and remain sparsely settled. The population in the Okeechobee-Everglades area (palm Beach, Broward, and Dade Counties) has grown as follows:

and Processors Cooperative are constructing a sugar mill south of Bolles Canal near South Bay. It is about 80 percent completed and the cooperative expects to begin grinding cane during the 1948 season. members have about 5,000 acres of cane planted, which an official stated would be about the season capacity of the mill. In Indian River County at Fellsmere another sugar mill and refinery has been in operation for several years. The have about 10,000 acres planted to sugarcane. Negotiations for a fourth mill to be located at Moore Haven are reported to have been completed and a mill site purchased. Actual construction on the mill will begin in the near future. The total value of sugarcane grown in the area in 1945-46 is estimated at
$11,764,000 from 40,000 acres.

(e) Citrus fruits: Citrus fruits are produced in the area from the western and northern limits of the Kissimmee Basin to the Davie area southwest of Fort Lauderdale in the Everglades from existing groves of about 268,540 acres. In addition, the climate of the Homestead and Redlands areas south of Miami permits production of tropical fruits, such as avocados, which will grow in very few places in the temperate zone. Although circus plantings in the low-lying lands in the area inundated by the 1947 flood are a small percentage of the total acreage in the State, they produce about 3,000,000 boxes annually for a net. yield to growers of about $4,4)00,000 (based on average net returns for the past 5 years from the annual report of the Florida State Marketing Bureau). Early reports from county agricultural agents indicate a loss of about 53 percent of the trees inundated during the 1947 flood.

(f) Other agricultural activities include poultry raising, dairying, and the production of noncommercial crops.

21. Forest products.--Practically all the forest in this area is cut-over land, but stands of timber suitable for commercial use remain on the western borders of the Everglades, in the Kissimmee Basin, and in

zone are replaced by the two seasons, wet and dry, characteristic of the Tropics. Mean annual temperatures vary from 75° Fahrenheit at Miami to 72° at Kissimmee, and average about 73° for the entire area. The water areas provided by the lakes, marshes, and channels, and 'the proximity of the Atlantic Ocean and the Gulf of Mexico, temper the climate, and extreme temperature ranges are not great. Highest summer temperatures seldom exceed 100° and nights, particularly in the Everglades area, are very cool. Temperatures as low as 20 have been experienced, however, in the Lake Okeechobee area. Relative humidity is generally very high throughout the area. Normal winds axe generally from the southeast.

31. Hurricanes.--Central and southern Florida are in the path of tropical hurricanes which originate fix the equatorial doldrums and move in from the Caribbean and Atlantic on curving paths at speeds of 10 to 40 miles an hour. The destructive forces of these storms are the winds whirling counter-clockwise about the storm (,enters at velocities reaching over 100 miles an hour. They are usually accompanied by intense rainfall. The majority of these storms strike the State in a westerly or northwesterly direction, although hurricanes of lesser intensity approach through the Yucatan Channel and cross the Gulf of Mexico to strike Florida from the southwest or west. The most dangerous hurricane season includes August, September, and October, although they have been experienced as late as November. The hurricane which struck Miami and the Lake Okeechobee area in 1926 caused severe property damage and large loss of life at Moore Haven, when waters of Lake Okeechobee wore driven over that. town. In 1928, a similar but more destructive storm struck from Palm Beach to the Lake Okeechobee area, where wind-driven lake waters overflowed the northern and southern lake shores and drowned about 2,300 people, producing one of the greatest disasters in the history of the country. In 1935, another high velocity hurricane caused loss of life and great property damage in the, area of the Florida Keys. The

32. Evaporation.--Evaporation and transpiration losses are very high throughout this area and particularly  the Okeechobee-Everglades area where large water surfaces are exposed. Estimates indicate an excess of average annual rainfall over evaporation of only 8.8 inches around Lake Okeechobee and about 12.3 inches in the Everglades. This balance varies considerably, however, from year to year and water losses-due to evaporation and transpiration axe less during the season of heavy rainfall. The effect of evaporation and transpiration is therefore an essential factor in the flood-control and water-conservation problem.

33.' Dry periods.--During the winter and spring, periods of drought lasting from 2 to 3 months are common. At Belle Glade on the southern shore of Lake Okeechobee, only 1 inch of rainfall was recorded in a 4-month period (December 1938 to March 1939). In addition, it appears that there are alternating periods of years when precipitation is below normal, when the pasture lands and Everglades become quite dry; and periods of years of abundant rainfall when the entire area is saturated. The occurrence of cycles of this kind is not well defined by the relatively brief records available.

34. Run-off and stream flow.--(a) The generally flat topography of the area, its vegetation, and the absorptive nature of its soils combine

produce very low run-off characteristics. Long continued rains gradually saturate the soils and fill the natural lakes and sloughs. natural stream channels, such as the Kissimmee River, are inadequate to carry off the water accumulated over large level areas. The water therefore spreads over the lower landing in a thin sheet and moves slowly as overland flow in the direction of the prevailing slope. In the areas where the slope is indeterminate the direction of winds and differences in rainfall distribution will change the direction of drainage. Artificial drainage outlets, pumping, and dikes are means used to accelerate this run-off. '

(b) Much of the northern part of the area under consideration drains into Lake Okeechobee resulting in annual fluctuations in lake level which occasionally cannot be controlled within the prescribed limits of 12.56 an(.5.5~) mean sea level (14 and 17 lake datum) because of the limited capacity of the St. Lucie Canal and Caloosahatchee River. In addition, due to subsidence of muck lands in the Everglades, a considerable part of the area immediately south of Lake Okeechobee now drains back into it in wet periods. In the coastal and southern

areas, waters collecting over the Everglades spread eastward as well as southward, to inundate low urban areas in and adjacent to West Palm Beach, Fort Lauderdale, and Miami.

35. Floods of record.--Numerous floods have occurred throughout the area with increasing damages as development progressed. The most severe recorded in recent years occurred in 1924,. 1926, 1930, 1934, 1941, and 1947. Detail stage and discharge data on these floods and others are presented in appendix C.'

36. Extent and character of flooded area.--The character of flooding is generally the same throughout, this entire area. Flooding to some degree begins shortly after the first of June and often continues until November, and even later in certain localities. This flooding results from continuous rainfall over the flat area and is often aggravated by tropical disturbances and by inability of natural stream channels with little fall to remove the water. The areas subject to this overflow and the damages caused thereby vary considerably according tn location.

(a) Upper St. Johns River and related areas: Characteristics of floods and flooded areas in the upper St: Johns Basin above Lake Tarney and related areas to the north are generally the same as those of the Kissimmee Basin described below. Major floods which occur about once in every 6 years generally cover about 1,050,000 acres. Minor floods occur more frequently, covering about 100,000 acres. There is no urban development in tiffs flood area except San-ford further downstream, but agricultural losses and damages to highways, farm property, and other miscellaneous damages average $2,077,000 annually, and the 1947 flood damages were $5,000,000.

(b) Kissimmee River Basin and related areas: The .situation in the Kissimmee Basin and in related areas on Lake Istokpoga and Fisheating Creek is typical of the flood characteristics described above. Water accumulates on the fiat lands, and the outlets of lakes such as Kissimmee and Istokpoga axe entirely inadequate to permit even the slow run-off from tributary areas during major storms. Similarly, the winding shallow channel of the Kissimmee River cannot handle the run-off from the entire valley without the flooding of large areas.

(c) The area in this basin actually inundated by major floods such as that of 1947 is estimated at 598,000 acres. Included are parts of the towns of Kissimmee (population 4,010 in 1945), and St. Cloud (population 1,202. in 1945), and several small settlements. Most of the area is pasture land devoted to cattle raising, but rich truck-farming areas around Lake Istokpoga and at other points are also included. Such major floods have occurred at a frequency of about one in. 6 years. Minor floods occur with greater frequency and overflow as much as 150,000 acres. Water remains on the land from 1 to 6 months.

(d) Urban losses in the Kissimmee-Fisheating Creek area are quite small but agricultural losses, particularly those to the cattle-raising industry, are substantial. In 1947 these amounted to about $4,000,-000, and the smaller flood of 1934 caused damages estimated at about $2,000,000 based on current values. Average annual damages, including those of more frequent minor floods, have been estimated at $1,500,000.

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(e) Lake Okeechobee and the Upper Everglades:  The flood characteristics of the Lake Okeechobee upper Everglades area differ from those of the area to the north and are unique. In its natural state all of the area around the rim of Lake Okeechobee, except the sandy ridge above the northeastern shore, was subject to overflow from the normal raising of the lake levels due to local rainfall and inflow from the north. Levees and outlet canals constructed by the Federal Government now protect the eastern, southern, and western shores from direct overflow from the lake. Prior to construction of these works, hurricane-driven tides of Lake .Okeechobee were a serious hazard to life and property in this area. The storms of 1926 ant] 1928 caused heavy loss of life and severe property damages.

(f) The level lands of the Everglades and all of the towns lying generally south of the lake perimeter are still subject to destructive flooding by continued heavy rains over the area, which existing artificial channels and pumping plants cannot remove. The area is also subject to flooding by overland flow of waters accumulating on wild lands lying east of the lake and soil  of the St. Lucie Canal, and by overland flow from areas to the west. These waters fill up the canals so that pumping of excess water from diked farms is impossible, and pile up against local farm and subdrainage-district dikes, cause them to fail, and inundate-thousands of acres of truck-farming and sugarcane lands.

(g) Damages from overflows in the upper Everglades around Lake Okeechobee have been very large and constitute a serious obstacle to continued development. In 1947, flood damages in this area aggregated $8,000,000 and smaller flood damages occur every year. Average annual flood damages in the Okeechobee-Everglades area arc estimated at $4,130,000.

(h) The coastal area: Most urban east-coast areas from West Palm Beach to Miami are subject to flooding by local rainfall and by overflows from the Everglades. At West Palm Beach (population 40,599 in 1945), flooding during 1947 was confined largely to outlying suburban areas. At Fort Lauderdale (population 26,185 in 1945) over 30 percent of the city was inundated and the flooded area included the main business district, railroads, industrial sections, and residential sections. Large areas in the western part of the city of Miami (population 192,122 in 1945) and the outlying communities of Miami Spring and Hialeah were flooded. Damages were incurred to roads utilities, railroads, and airports.

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37. Standard project flood.--The October 1941 storm which centered in north-central Florida was selected for the project storm from which rainfall area-depth curves were used to determine the design rainfall. It was found uneconomical to design for the total rainfall of the project storm; therefore 30 and 50 percent were used for design purposes in the Kissimmee Basin and St. Johns Basin, respectively. e resulting run-off was found lo equal about the maximum flood of record in each instance. In the Everglades and coastal areas the design was predicated upon various rates of runoff removal as determined by the land use (appendix C).~

38. Projects of the Corps of Engineers Existing projects in the area which are under the jurisdiction of the Secretary of the Army and supervision of the Chief of Engineers are summarized below:

(a) Upper St. Johns River: There are no existing Federal improve-meats in the upper St. Johns River area above Lake Harney.

(b) Kissimmee River: The existing Federal navigation project on the Kissimmee River provides for a channel 30 feet wide and 3 feet deep at ordinary low surges, extending from the town of Kissimmee to Fort Bassenger about 37 miles above the mouth of the Kissimmee River. An extension of this channel up Istokpoga Creek is also a part of the project. The total length of the channels is about 109 miles. This project is inadequate for any navigation except skiffs and shallow-draft motorboats, and no funds have been spent on the project since 1928. Past expenditures by the United States on this minor project have been $23,500 for new work anti $25,000 for maintenance.

(c) Caloosahatchee River and Lake Okeechobee drainage areas: The existing Federal project for the Caloosahatchee River and Lake Okeechobee drainage areas was authorized and modified by a number of river and harbor acts of the Congress from the act of June 25, 1910, to that of March 2, 1945. The bulk of the work, however, which included the present navigable channel across the State and works for control of Lake Okeechobee was authorized by the River and Harbor Act of July 3, 1930. The comprehensive plan of improvement set forth in this report is a necessary modification and extension of the present authorized project. Since this project, as modified and extended in scope, will serve the purposes of flood control anti water conservation to a greater degree than its original purpose of navigation, it is treated as a flood-control project and is set up to conform to the laws and procedure of flood-control work, except that the further maintenance and improvement of the navigable waterways will be treated as river and harbor work.

(d) The existing project for the Caloosahatchee River and Lake Okeechobee drainage areas provides for a navigable waterway with a

depth of 8 feet from the Intracoastal Waterway at St.. Lucie Inlet on the Atlantic coast across the State by way of St. Lucie Canal, Lake Okeechobee, and the Caloosahatchee River to the Gulf of Mexico at Punts Rasa, with a number of connecting channels. The total length of this cross State waterway is almost 155.miles. In addition to its navigation feature, this project includes control works in the St. Lucie Canal and Caloosahatchee River foe regulating levels of Lake Okeechobee, and levees around the southern and northern shores of Lake Okeechobee having a total length of about 68 miles. Hurricane gates are provided in the levees at five points where local drainage canals leave the lake and where Taylor Creek enters it on its northern shore. Present operating procedures for control of Lake Okeechobee contemplate a range of lake stages of from 12.56 to 15.56 feet above mean sea level (14 to 17 feet former Okeechobee datum). The existing project is essentially complete, except for deepening the authorized channels from the existing depth of 6 feet to 8 feet and completing certain modifications of control structures.

(e) Harbor improvements: Authorized harbor and channel improvements in this area are at Canaveral Harbor, Fort Pierce Harbor, St. Lucie Inlet, Lake Worth Inlet and port of Palm Beach, Hollywood Harbor (Port Everglades), :Miami Harbor, all on the east coast. At Fort Myers, on the west coast, there is an authorized Federal project for a turning basin and a channel to the municipal yacht basin to serve shallow-draft navigation, consisting principally of pleasure craft, but construction has not been started.. Since these harbor projects are only indirectly affected as a general rule by the plan of improvement considered in this report, further details of their character and cost are not given.

(f) New River: The River and Harbor Act of 1945 authorized minor improvement of the New River and its south fork in Broward County sum estimated cost. of $69,000. No work has been done on the project to date.

(g) Removal of water hyacinths and such other vegetation from navigable fresh-water streams, canals and lakes in this area is authorized by Congress. This work is ~ continuous program. The total cost to June 30, 1947, for the entire Jacksonville district has been about $913,000 and the latest approved annual expenditure for this work is $75,000. While the greater portion of the, funds ~re expended on the northern half o£ S-t. Johns River, the latest annual working estimate for the area covered by this report is $8,400.

(h) Snagging and clearing and emergency flood protection: Under it authority for improvement of navigable streams for snagging and clearing and for emergency flood fighting and protection, the Corps of Engineers expended over $422,000 in this area for emergency work during the floods of 1947 up to December 15. This emergency work was performed by cooperative action on the part of the Federal Government and local interests and resulted in a substantial degree of flood relief. Some of the emergency work performed will be useful s~ a part of improvements for flood control proposed in this report.

39. Projects of other Federal agencies.--(a) The Soil Conservation Service of the Department of Agriculture has cooperated with the agricultural experiment station, University of Florida, in preparing an exhaustive study of soils and water control in the Everglades region. The report on this study was completed in 1947.

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fires. The Everglades fire-control district was created by the State legislature in 1935 to combat muck and vegetation fires in the Everglades. This agency is now active and maintains a system of look-out towers, fire-fighting equipment, and reconnaissance aircraft for fighting · fires. It also conducts an educational program to aid in fire prevention.

41. Public hearings.--In order to obtain the views and suggestions of local interests, public hearings have been held throughout the entire area under consideration in this report at the following localities:

In addition, conferences with local interests for discussion of the problems and plans have been held at West Palm Beach, Miami, and at numerous other localities. A digest of the proceedings of these hearings, together with copies of resolutions and pertinent correspondence, is being furnished with this report as a separate exhibit.

42. Desires of local interests.--(a) The desires of local interests with respect to flood control, drainage, and water conservation were developed in detail m the hearings referred to above. In addition, consultation with county engineers and officials of the various counties  have developed the views of those agencies. Similar action has been taken with officials of the Everglades drainage district and many of the local subdrainage districts. The desires of local interests are also reflected in numerous resolutions adopted by local organizations of all lands throughout this area and the State of Florida. Copies of these resolutions ~ are being furnished to higher authority for review during consideration of this report.

(b) In the Kissimmee Valley and upper St. Johns and related areas there is strong local interest in measures which will relieve the flood situation over wide areas of pasture land. The Florida Cattlemen's Association has indicated great interest and urged immediate action on such measures. In addition, agricultural interests, subdrainage districts, and county officials in thence sections have proposed measures for prevention of overflow of farm lands south of Lake Istokpoga and pasture lands in the Fisheating Creek section. Water conservation to augment dry season supplies is also desired in these areas. Citrus growers along the western divide of the Kissimmee B&sin and on the ridge between the St. Johns Basin and Indian River are particularly interested in water control for water supply and frost protection.

(c) Interest in the Lake Okeechobee and upper Everglades area desire measures for relief of local flooding of the fiat lands lying around the lake. They are also interested in additional outlet capacity for Lake Okeechobee, with a view to maintaining lower lake levels to reduce pumping costs where drainage from farm lands is pumped into the lake. Other interests in the lake area and in the Everglades more distant from Lake Okeechobee desire additional

(d) Along the east coast, urban interests desire protection from flood waters of the Everglades and improvement of local protection works and drainage outlets to the sea. Agricultural interests and the communities in this area are much concerned with the progressive salt-water intrusion which has occurred during dry periods, and desire that measures to relieve this situation be included in any plan improvement. In addition, the east-coast cities and towns are looking toward Lake Okeechobee and the Everglades ns a source of future water supply, in expectation of large population increases. In the east-coast area south of Miami, agricultural interests desire protection from overflow by wind-driven titles of the Atlantic which inundate and damage a large area. Cattle interests along the eastern borders of the Everglades desire removal of flood waters from pasture lands.

(e) In the Caloosahatchee Valley local interests have expressed the desire for improved water control on rich agricultural and citrus lands bordering that river and for control of salt-water intrusion on its lower reaches.

({) Local interests also desire further inland navigation improvements in this area. However, they have withdrawn the request in conjunction with the comprehensive plan of development, and request that navigation be considered later in a separate report.

(g) In summary, local interests are discouraged by the futility of repairing or. restoring local levees and canals which are inadequate in the face of major floods. They find themselves unable to cope with the problem of adequate water conservation for use in the dry periods. They now ask for a comprehensive plan of flood protection and water control and are convinced that the solution of the problem lies in a coordinated plan of improvement for the area as a whole. They feel that the scope and complexity of such a plan places it beyond the 'capabilities of State or local agencies. In certain instances, the desires of local interests are in conflict to such an extent that in all probability nothing n be accomplished by local agencies. Under a coordinated plan of improvement, however, most of these conflicts would be eliminated and works best meeting the needs of the area as a whole would be obtained.

43. Basic problem.--(a) In its natural state the part of central and southern Florida considered in this report was a vast wilderness of water, forest, prairie, and marshland. The forces of nature had combined to establish a fine balance which supported the vegetable, animal, and human life that prevailed and resulted in building up the land to the condition in which white men first found it. A large part of this land, the Everglades, was still in a formative stage when its development began. The inherent fertility et the area and its resources made its development and use inevitable. This development, however, resulted in physical changes which altered the natural balance between water and soil, and much of the development was undertaken without any real knowledge of the area or of the hazards involved. The parched prairies and burning mucklands of the Everglades in 1945, the flooding of thousands of acres of farms and

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communities in 1947, and the intrusion of salt water into lands and water supplies of the east coast are basically the results of altering the balance of natural forces. The basic problem of this area is, therefore, to restore the natural balance between soil and water in this area insofar as possible by establishing protective works, controls,
and procedures for conservation and use of water and land.

 44. Flood control.--The provision of adequate flood control is essential to continued occupation and use of large areas in this section; without it further development would be hazardous. It is an essential of any comprehensive plan for the area. Due to its basic nature, the flood problems and solutions considered are described briefly for each part of this area:

(c) Lake Okeechobee-Everglades area' In the Lake Okeechobee area, floods from the lake presented a serious hazard to human life and to development of the area prior to construction of the present levee system by the Federal Government. Continued vigilance regarding this aspect of the flood problem in this area is still necessary because the flood danger results from the largely unpredictable nature and magnitude of hurricanes. Review of measures for control of Lake Okeechobee and protection from its waters is an important part of the plan presented in this report. The character and extent of the additional flood problem in this area has been described in preceding paragraphs· The flood condition results from local rainfall on the fiat lands around the lake and from overland flow of waters from adjacent wild lands, and not from overflow from Lake Okeechobee. Accordingly, measures have been considered for more rapid removal of local run-off by means of canals and pumping stations, for interception

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of overland flow by means of levees, and for its diversion and disposal into storage areas. Any final solution of the flood problem in the area adjacent to Lake Okeechobee ,oust be closely correlated with maintenance of ground-water level for agriculture.

(d) East-coast areas: The flood problem of the east' coast generally from north of West Palm Beach to Miami is largely one of preventing overflow of low outlying urban areas and farm lands by waters from the Everglades. Flooding in this section is not particularly hazardous to human life, but it does cause large recurring property damage and presents a definite threat to public health. The solution in this appears to be construction of levees to prevent such overflow, and improvement or provision of canals and structures to remove and control local run-off from local coastal areas. In the agricultural area south of Miami the flood problem is one of protecting productive farm lands from overflow by storm-driven tides of the Atlantic, as well as from inflow from the lower Everglades. Suitable levees would protect this area.

45. Water control.--(a) Water control and flood control are so closely interrelated in central and southern Florida that, it is usually impracticable to state that a problem is one of water control Furthermore, engineering structures in many cases must see both purposes to be effective. Water control coordinates the control of ground-water levels and conservation of water for use in dry periods. Because of this interrelation, both problems are involved in practically all the solutions discussed briefly in the foregoing paragraph.

(c) The drainage problem has also been approached with knowledge that it will probably never be possible to completely drain all of the lands in this area. In fact, it would be most unwise to attempt to do so. Over drainage of certain lands is now a serious problem which much be rectified. Consequently, solution of the drainage problem contemplates only drainage of lands, such as the Everglades area of 1,000 square miles south of lake Okeechobee, which appear suited to long-term agricultural use. Lands of this kind occur elsewhere throughout the area, but in quantities too small for large-scale development or protection.

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supply needs and look to the interior fresh-water lakes, including Lake Okeechobee, a-~ a possible future source of supply. The comprehensive plan set forth in this report will lend itself to future modifications to meet such longer-range requirements as they arise.

47. Salt-water intrusion.--Along all of the coastal areas, salt-water intrusion has become a serious problem during dry years. Between 1910 and 1942, the rate of salt-water encroachment in the aquifer was 235 feet average in the Miami area. In the dry period of 1942, salt water intrusion into the underlying rock at rates of from 200 to 800 feet a year. This rate of intrusion has been more rapid in dry years like that of 1945 when the Everglades were dry and flow of fresh water in canals leading across the east coast to the' sea was negligible. At such times salt water moves up the various canals for distances up to 5 miles. The constructive effects of the salt-water intrusion have become evident on groves farm lands, and in .municipal  water necessary to prevent salt-water intrusion. Control structures should be provided to release water from such conservation areas to maintain flow in east-coast canals during dry periods, and structures at seaward canal outlets should be provided to prevent inflow of salt water. Problems of salt-water intrusion, similar to those of the cast coast, exist in the lower reaches of the Caloosahatchee River Valley, and possible methods of abatement are much the same as those described above.

48. Preservation of fish and wildlife.--Southern and central Florida were originally one of the greatest natural habitats for fish, birds, and game on the North American Continent. The shores of Lake Okeechobee and the Everglades once afforded a refuge for thousands of water fowl and other birds which are now virtually extinct. The Fish and Wildlife Service of the Department of the Interior has investigated the possibilities of preserving the fish and game resources of this area and has presented plans for accomplishing this purpose. The plan of improvement presented in this report has been developed with full consideration given to this important feature. In brief, it appears that large parts of the Everglades should be held and protected as conservation areas which would be ideal for preservation of wildlife. Certain other natural marshes in the St. Johns River Basin and elsewhere should likewise remain in their natural state for preservation of fish and wildlife and their drainage is not proposed under this plan.

49. Navigation.--Numerous navigation improvements desired by local interests have been studied in preparing this report investigation of some of these navigational improvements has previously been authorized by Congress while some are entirely new projects proposed by local interests during discussions of the problems of this area.

(a) Cross-State waterway: Deepening of the cross-State waterway (St. Lucie-Okeechobee-Caloosahatchee route) to a depth of 8 feet was authorized by Congress in the River and Harbor Act of March 2, 1945. The present approved estimated cost is $275,000. It has

 

quadrimaculatus, is present in this area but does not breed, well, probably because it prefers neutral or slightly alkaline waters, whereas these waters are strongly acid. The flight range of that mosquito is normally less than 2 miles and, since all heavily populated areas are farther from proposed conservation areas, they would not be exposed to infestation.

(b) The salt-marsh mosquitoes which are the most numerous pests for several miles inland, due to their great, flight range, would not be affected by the improvement. There are several species of freshwater pest mosquitoes which could breed freely in the conservation areas, but the general effect of a water-control plan should be beneficial because their flight range is short and the land near dwelling would have improved drainage due to improved drainage: canal facilities. The improvement of the canals and flooding of the marshy areas would encourage growth of small fish which are natural mosquito enemies and would also tend to reduce the shore line to a shorter length. The growth of marginal vegetation which is the favorite place of concealment for mosquito larvae would be restricted.

54. Pollution abatement and public health Many of the towns along the coast discharge sewage effluent and polluting wastes into the local drainage canal. Also most all of the suburban areas arc served by septic tanks and ground toilets. During the 1947 flood these facilities were flooded, presenting a serious health hazard and resulting in hundreds of suburban families moving out of the flooded area. The comprehensive plan would give relief from such dangerous conditions.

VIII. COMPREHENSIVE PLAN

55. General.--The comprehensive plan of improvement which has been developed during the progress of the survey is set forth in the following paragraphs of this section and shown on drawing, sheets 1 to 3. The physical and engineering detach are given in appendix D.~ Certain features which were considered but not included in the proposed plan are also described. In general, the proposed plan of improvement provides those features for flood control and other purposes which are feasible from an engineering standpoint and have economic justification. These works would generally provide full protection from a storm similar to that of 1947. These features, as well as certain items which have been rejected, are described in a general order from north to south by physical subdivisions of the area.

56. Upper St. Johns and related areas.--(a) Upper St. Johns: The plan for this area contemplates improvements of Lakes Poinsett, Washington, and Wilmington. Levees and control works would be provided downstream from Lakes Poinsett and Washington, and outlet channels with control works would be provided from each of the three lakes to Indian River, capable of discharging floods up to the maximum of record. The costs of the improvements are estimated at $10,084,000 for construction and $517,000,or lauds and relocations, making a total first cost of $10,601,000. The annual cost of maintenance and operation is estimated at $28,000.

(b) North Fork St. Lucie River: In the upper prairies, North Fork of St. Lucie, and Allapattah Flats area, improvement .and control structures would be provided in the existing Belcher, Canal and diversion canal; a new canal with a control structure would be provided on 

the St. Lucie-Martin county line. The costs of the improvements are estimated at $10,238,000 for construction and $186,000 for lands and relocations, making a total flint cost of $10,424,000. The annual cost of maintenance and operation is estimated at $47,000. 

(2) The costs of the improvements in the Kissimmee River Basin are estimated at $23,179,000 for construction, and $537,000 for lands and relocations, making a total first cost of $23,716,000. The annual cost of maintenance and operation is estimated at $200,000.

(b) Istokpoga area: (1) The plan for the Istokpoga area provided for control of Lake Istokpoga for flood storage, for conservation of. water for use during droughts, and for reducing run-off to the Kissimmee River. The Lake Istokpoga improvements would control floods up to the maximum of record. Flood flows would be passed through the controlled spillway and the Harney Pond Canal, improved and extended, to Lake Okeechobee. Flood protection for the agricultural lands would be provided by levees along the eastern and southern shores of the lake. Water control for the cultivated lands would be provided by control structures and improvements of the existing Indian Prairie, Harney Pond, State Road 70, and Slough ditch canals. (2) The costs of the improvements in the Istokpoga area arc estimated at $9,507,000 for construction and $572,000 for lands and relocations, making a total first cost of $10,079,000. The annual cost of maintenance and operation is estimated at $75,000.

(c) Fisheating Creek area: (1) The plan for the Fisheating Creek area would provide for flood control for the greater part of the area. A chute spillway in the bank of Fisheating Creek where it enters the flood plain about 8 miles from its mouth would divert part of the Hood flow from the lower water course, and pass it through a flood discharge canal to Lake Okeechobee. This canal would be formed by connecting up the existing borrow pits along the north side of the existing Lake Okeechobee levee and by extending that channel to the spillway.

(2) The costs of the improvements in the Fisheating Creek area are estimated at $750,000 for construction, and $5,000 for lands, making a total first cost of $755,000. The annual cost of maintenance and operation is estimated at $14,000.

(d) Moore Haven and Newhall drainage district: (1) The plan would provide for flood protection for the town of Moore Haven and for the adjoining Newhall drainage district by extending the western end of the existing Lake Okeech~bee levee southwestward to cut off floodwaters from Fisheating Creek; by extending the flood emergency project levee along State Road 78 southward to join the old Everglades

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58. Lake Okeechobee-Everglades area.--(a) Lake Okeechobee: (1) In its present status and as considered under the comprehensive plan of improvement, Lake Okeechobee is a multiple-use reservoir with flood
control, navigation, and water-conservation functions. Its waters are impounded by the present levee system and a measure of control is provided by the existing St. Lucie Canal and improved Caloosahatchee River. The existing levees around the rim of Lake Okeechobee protect seven towns and over 130,000 acres of developed rich
agricultural land from direct overflow from the lake. The outlet canals and the lake provide a navigable waterway across Florida. Between elevations of 12.56 and 15.56 feet above mean sea level (the
present prescribed limits of regulations) the lake provides storage of 1,320,000 acre-feet of water. This great reservoir and its controls are the heart of any plan for flood control and water conservation in
south Florida.
(2) Lake control: Due to the importance of control of Lake Okeechobee, this matter has been given careful study in this and prior reports. Features of the comprehensive plan proposed for the Kissimmee Basin would accelerate discharge into the lake during flood periods and would assist in maintaining its levels during dry seasons. In addition, the present and prospective dry-season water needs of the Everglades area south of Lake Okeechobee indicate that some increases in lake storage may be required to more fully meet this increasing
demand. Consideration of these factors has led to inclusion in the plan, of provisions for modification of lake control. Since all indications are that this could be obtained most economically by enlargement of the St. Lucie Canal and Caloosahatchee River, estimates have been based on such provisions. Provision of an additional outlet canal is a possibility which will be given further consideration as detailed plans arc prepare~ prior to construction. The exact extent to which discharge may need to be increased will depend on further
studies of the effects of projects planned in the watershed relatively minor damage and with no danger of overtopping or breaching. Experience gained as a result of the floods and winds of 1947 indicates, however, that a low levee should be extended around the lake shore from the St. Lucie Canal northward to tie in with the present north shore levee, to protect the development which has taken
place in that area since the existing levee project was built. Also, a

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(5) Lands and relocations: Lands and rights-of-way required for improvements proposed for Lake Okeechobee and its outlets would be those necessary for the levee extensions on the northwestern and northeastern shores of Lake Okeechobee, for widening of outlet canals and for location of control structures. These rights-of-way in the aggregate would be comparatively small.

(6) Islands in Lake Okeechobee: (a) Kreamer, Ritta, and Torry Islands, in the southern part of Lake Okeechobee, were completely' submerged during the flood of 1947 and all drainage-control works, such as dikes and pumping stations, were severely damaged, Lake Okeechobee reaching a maximum stage of 18.74 feet mean sea level on October 3. The total area of these three islands varies from 440 acres above elevation 16 feet mean sea level to 4,150 acres at elevation 12 feet mean sea level. Only about 30 persons live on the islands, as most operators of island farm lands and their employees live on the mainland. Although local interests on the islands have provided farm dikes, about 40 percent of the total area would be flooded by lake stages of 17 feet mean sea level and the entire acreage now in use is flooded at stages of 18.5 feet mean sea level. It would be possible to protect these islands, except against hurricanes, by higher ring levees and pumping plants, under lake conditions that Would prevail upon completion of the comprehensive plan and to maintain them in agricultural use, but the large cost of such work would be excessive in comparison with their value.

(b) During drought periods there is inadequate water supply for the developed area immediately south of Lake Okeechobee due to the lake being at low stages. The development of the comprehensive plan will bring into production about 527,000 acres of rich muck land south of the area now in cultivation which must be supplied with water during droughts. Consequently, local interests are expected to increase their demand for generally higher lake levels to furnish the required water for ground-water control during such periods. Higher lake levels would demand higher ring levees about the islands and result in ever-increasing pumping antilevee maintenance cost. It is foreseeable that activities on the islands could be carried on only by almost year-

round pumping. These increased costs, plus the first construction cost, would soon exceed the benefits to local interests, resulting in the island project becoming economically unsound. The activity on the islands has been the source of continual demands and agitation for lower lake stages as the elevation of the islands decreased from subsidence. Consequently, the agitation of island owners will continue 'to
increase as more lake storage is required and subsidence takes its toll of the muck soil. Since any levees that could be economically built and maintained would not offer protection against hurricanes, they would be a hazard to human life in that they would give a false sense of security. Therefore, the comprehensive plan contemplates the abandonment of the islands for agricultural purposes because their
continued use would be economically unsound and would maintain a controversial problem which could not be justly ignored.
(7) The first cost of additional improvements of Lake Okeechobee and its outlets; as a part of the comprehensive plan, is estimated at $57,463,000 for construction and $1,621,000 for lands and relocations, making a total first cost of $59,084,000. The annual cost of maintenance and operation of Lake Okeechobee and its outlets, including existing Federal improvements, is estimated at $669,000.
Everglades area: (1) The plan would provide flood protection and control for 1,027 square-miles of developed and potentially productive agricultural and adjoining the southern shore of Lake Okeechobee. Flood protection would be provided by constructing
levees around the area and by joining them to the existing Lake Okeechobee levee. Water control would be accomplished by the
construction of a canal network connected to eight pumping stations  on the perimeter of the system. The network would be formed by
improving existing canals within the area and by constructing interconnecting and rim canals. The pumps would dispose of excess
run-off within the area by pumping from the canal network into the lake and/or into the conservation area to the south; and would also
pump water into the area from Lake Okeechobee when needed during dry seasons. The system would also permit a flood discharge of
7,000 cubic feet per second from Lake Okeechobee to the conservation area for aiding the control of Lake Okeechobee. Conservation would be provided by pumping excess run-off from the area into the conservation area.
(2) The costs of the improvements in the Everglades agricultural area are estimated as $36,077,000 for construction, and $520,000 for
lands and relocations, making a total first cost of $36,597,000. The annual cost of maintenance and operation is estimated at $1,948,000.
59. East- coast area.--This area consists of the coastal-ridge section and the eastern portions of the Everglades extending from the north
Palm Beach County line to the southern tip of Florida.
(a) Everglades conservation area: (1) The plan would create three interconnected reservoir areas totaling about 1,500 square miles
which would occupy portions of Dade, Broward, and Palm Beach Counties. These reservoirs would store the maximum-record rainfall
on the conservation area plus the runoffs from the area north of West Palm Beach Canal, the Everglades agricultural area, and some
flood discharge from Lake Okeechobee. Impoundment of these waters would prevent their flowing eastward and flooding the developed areas along the coastal ridge. maintenance of water in the

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conservation area would provide water for use on the the east-coast agricultural lands when needed, raise the ground-water table and improve water supply for the east-coast communities, ameliorate salt-water intrusion in the east-coast water supply well fields and streams, and benefit fish and wildlife in the Everglades. The reservoirs would be created by constructing a system of levees from the West Palm Beach Canal southward between the main body of the Everglades and the west edge of the coastal ridge to the Tamiami Trail, westward on that trail to the Collier County line, then northward to the tie into the west rim levee of the Everglades agricultural area. Levees along the Hillsboro and North New river Canals would divide the conservation reservoir into three parts, interconnected by levee would permit discharge of excess water from the conservation area onto the low-lying areas to the south, and then to the lower end of the peninsula. The part of the east coast protection levee which forms the eastern boundary of the conservation area is the major feature for protection of the east coast. 

(2) the cost of the improvements in the Everglades conservation area is estimated as $31,224,000 for construction and $2,110,000 for lands, making a total first cost of $33,224,000. The annual cost of maintenance and operation is estimated at $277,000. 

(b) Palm Beach County: (1) The planned improvements in Palm Beach county serve various purposes. Flood relief and water control for the Hungryland and Loxahatchee sloughs would be provided by constructing a canal to the coast with a control structure near its outlet. Flood discharge from Lake Mangnia would be diverted by a canal to Lake Worth. Water control for the Lake Osborne to would be provided by a control at the outlet of the channel at the West Palm Beach Canal, and by a short canal from Lake Osborne to intrusion. Lake ida would be benefited similarly by a short canal and control structure. Construction of spillways in the conservation levees at the West Palm Beach and Hillsboro Canals would provide water to the entire area when needed during drought periods.

(2) The cost of improvements in Palm Beach County is estimated as $2,668,000 for construction and $380,000 for lands and relocations, making a total first cost of $3,048,000. the annual cost of maintenance and operation is estimated at $38,000. 

Canal and along the coast. 

(2) The cost of the improvements in the Davie agricultural area is estimated as $3,694.000 for construction and $20,000 for lands, making
a total first cost of $3,714,000. The annual cost of maintenance and operation is estimated at $267,000.
(e) Dade County: (1) The plan of improvements for Dade County would provide for flood control and protection, water control, and
alleviation of salt-water encroachment. These benefits would be secured by improving the channels, and constructing control structures
at the outlets of the following existing canals:

Culverts at the head of Snake Creek, Miami, and Tamiami Canals would provide for the flow of water from the Everglades conservation reservoirs into the area for use during dry seasons. The levee (some 74 mile~ long) surrounding the agricultural lands of the Perrine-Home-stead area would protect against flood waters from the Everglades and against ocean tides driven by hurricanes from the south and east. Salt barrier-type spillways and culverts, 1.3 in all. in the east and south walls of this levee would control the discharge from the canals and prevent salt-water intrusion.

(2) The cost of the improvements in Dade County is estimated as $13,987,000 for construction, and $1,298,000 for lands and relocations, making a total first cost of $15,285,000. The annual cost of maintenance and operation is estimated at $101,000.

60 Meteorological and hydrological control system.--For the proper operation of an integrated system for water control, it is necessary to cover the entire area under consideration with au adequate interrelated net of meteorology and hydrologic stations. The net should be adequate to properly indicate conditions of rainfall, lake and river stages and flow, temperature, evaporation, relative humidity, barometric pressure, and wind velocity and direction. Automatic radio transmission of stages from key stat, ions on the principal streams is also considered to be essential. The data would form the basis for a system of flood forecasting on the major streams and for other studies enabling progressive improvements in operating procedures for the entire water-control system. The total cost of meteorological and hydrological instruments and construction is estimated at $170,000.

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67. Prevention of flood damages .~(a) General: Estimates of flood damages which would be prevented by the proposed improvements have been based on all records of floods and flood losses for the various areas under consideration. In Spite of the scarcity of flood damage records due to the relatively recent development, sufficient records are available to indicate with reasonable accuracy the frequency of flooding and the damages which may be anticipated. Consequently it has been possible to prepare flood frequency-damage relationships for each of the component areas of the comprehensive development. In each case considerable weight has been given to damages incurred during the flood of 1947 since, it has been possible to complete a general flood damage survey since that flood. Some departure from usual procedures in analysis of flood damages and benefits of flood protection has been necessary because of the peculiar flood characteristics of central and southern Florida. The uniformly fiat topography and the fact that floods are due to the accumulation of waters from long wet periods, which produce large overland flows, preclude the

possibility of developing stage or discharge-damage relationships. It is believed, however, that estimates of damages are sufficiently accurate
to show the magnitude of the flood problem and the economic merit of the proposed improvements.

(b) Flood damages in 1947: Damages as a result of the flood of 1947 were heavy and widespread. This flood caused a loss of over $10,-
900,000 to citrus growers in Broward and Dude Counties where 8,400 acres of groves were destroyed in addition t~ loss of fruit crops. The
loss to sugarcane planters around Lake Okeechobee was estimated at $1,450,000; and cattle raisers throughout the area suffered damages of over $3,400,000. In addition many miles of highways were submerged, with resulting dislocation of transportation facilities and large
costs for rebuilding and resurfacing. Urban damages were heaviest in Broward and Dade Counties, where flooded areas include the center
of Fort Lauderdale and the Miami Springs and Hialeah sections of Miami. The complete flood damage survey made by the Corps of
Engineers resulted in an estimated total loss of $59,000,000, as a result of the flood of 1947, including both direct and indirect losses.

(c) Average annual flood damages: The flood of 1947 was estimated to be one of about 25-year frequency on the lower east coast and of
from 6- to 10-year frequency in other parts of the area. .Minor floods occur from the upper St. Johns to the lower Everglades as often as
every other year but damages from such overflows are relatively light. Floods greater than that of 1947 have occurred in all parts of central.
and southern Florida, according to past records, and their recurrence at this time would result in much greater losses than those experienced
in 1947. All of these factors were taken into consideration, in preparing flood frequency-damage curves and in computing the average
manual flood damages to be anticipated in this area under present conditions if flood protection is not provided, as follows:

Upper St. Johns and related areas ......................................................................................................$2, 077, 000
Kissimmee River Valley and related areas .............................................................................................1,500. 000
Lake Okeechobee-Everglades area .....................................................................................................4, 130, 000
East coast-Everglades area ...................................................................................................................3, 857, 000

Total average annual flood damage ....................... .......................................11,564,000 

(d) Flood damages prevented: In determining the flood damages that would be prevented by the proposed improvements the following factors were taken into consideration:

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68. Land-use benefits.--In addition to preventing flood losses, the improvements proposed would result in large benefits due to increased land use. In computing the part of such benefits that could be credited to the project, care was exercised to avoid any duplication with flood prevention benefits. The increased land-use benefits were obtained as follows:

(a) Agricultural: The proposed improvements would provide the basic flood protection and water control which is essential to the development and use of over 725,000 acres of rich agricultural land which is now practically unused. They would also contribute large to more intensive and profitable use of existing pasture and farm land; as shown in the following table:

(b) The benefits which would result from increased or higher use of these lands were estimated as the difference between their net productive or earning power under present conditions and that which would prevail if adequate flood protection and water control was provided. In all instances the crop or land use providing the lower benefit was used, when several uses were possible, to be on the conservative side. Factual data to serve as a basis for computing returns for various land uses, and under conditions with and without water control, were obtained from marketing agencies, producers' associations, individual farm and ranch operators,-and from county agents. In computing net returns all local costs of production, including local drainage district costs and farm measures for farm water control, as well as losses due to flood and drought, have been deducted or properly accounted for. These net increases in production, which will result in large measure from adequate flood protection and water control, range from about $1 per acre annually due to more intensive use of existing pasture lands in the Lake Okeechobee-Everglades area to an increase of $200 per acre annually for new citrus land in the Davie area in Brown. rd County. Computations of increases are based on 1945-46 price levels and are considered a reasonable average for this area.

(c) The full net increase in return which would result from flood protection and water control was not-claimed as creditable to the proposed improvements. Benefits credited to the project were modified to take the following factors into consideration:

(l) Since increased productiveness of lands would vary from the maximum on those given complete flood protection and full water control to zero benefit for 

70. Summary of benefits.--The average annual benefits of the proposed improvements which have been evaluated in monetary terms and described in the foregoing paragraphs may be summarized as follows:

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its total annual charges indicates that it has a benefit-cost ratio of 2.05. It is therefore apparent that the plan as a whole is economically justified by a wide margin. Due to the interrelation of the features of the comprehensive development and the necessity for their coordinated construction and operation, it is impossible to divide benefits among the individual canals, levees, and control works, and to compute their economics separately. The economics of the various parts of' the plan which can be set up in separate groupings have been investigated and are as follows:

72. The comprehensive development set forth in this report would result in large benefits which would accrue partly to the Nation as a whole and partly to local interests. Consequently, a proper division of the cost of the project between the Federal Government and local interests is of the greatest importance. Conclusions regarding the extent of local cooperation to be required and the division of cost are set forth below.

73. Lands, easements, and rights of-way.--In the accomplishment of flood-control projects such as the levees, control works, diversion channels, flood-channel improvements, and major drainage canals, such as arc proposed in the comprehensive plan, it has been found that local interests are best qualified to furnish necessary lands, easements, and fights-of-way. Moreover, present flood-control law requires that local interests furnish such lands, easements, and rights-of-way for local flood-protection projects. Establishment and operation of the conservation areas planned for the Everglades would require flowage easements over lands of these areas and the imposition of suitable restrictions on use of these lands. The State or other responsible local interests should be required to acquire title to or flowage easements over these lands to impose and enforce restrictions as to use which are considered satisfactory to the Secretary of the Army; and to furnish, without cost to the United States, the necessary flowage easements over lands of the conservation areas. This requirement should be considered applicable to any other lands which future development of the comprehensive plan may indicate to be required for conservation areas. The total cost of lands, easements, and rights-of-way, including provision of the conservation areas, to be borne by local interests is estimated at $3,898,000.

74. Relocations and alterations.--Local interests should be required to bear the cost of all relocations and alterations of highways and public utilities which may be required for the construction of the

75. Maintenance and operation.--(a) Cost: The cost of maintaining and operating all facilities of the comprehensive development after completion, in accordance with regulations prescribed by the Secretary of the Army, should be borne by local interests, except that the cost of maintenance and operation of the control works, levees, channels, and navigation locks of the St. Lucie Canal, Lake Okeechobee, and Caloosahatchee River should continue to be borne by the Federal Government. The average annual cost of maintenance and operation to be borne by local interests when the project is complete is estimated at $3,034,000. This charge would be zero at the beginning of the construction period, gradually increased to the full amount as features of the project are completed, and continue thereafter for the life of the project.

76. Lake Okeechobee levees and outlets.--Lake Okeechobee together with its outlets is, in effect, a multiple-use reservoir with flood-control, navigation, and water-supply functions. Its improvement and operation for these purposes is the heart of the comprehensive plan. It appears essential that maintenance and operation of the control works, channels, navigation locks, and levees involved in this feature be by the Federal Government. The modifications of levees and lake control now proposed in the compreh6nsive plan would result in large benefits by providing deeper navigation channels and providing a higher degree of flood protection to the thickly populated area around Lake Okeechobee. These modifications would also provide improved control and conservation of water which would be of substantial benefit to the agricultural area south and east of Lake Okeechobee. The fact that modification of lake control and the levees about Lake Okeechobee produces large increased land-use benefits, as well as benefits from flood control and navigation, has been recognized by the following division of cost for the entire project which results in dividing the cost of proposed modifications about 61 percent to the Federal Government and 39 percent to local interests.

77. Highways.--Except for previously discussed alterations of Tamiami Trail and State Roads 84 and 25, the provision of roads included as a Federal part of the comprehensive development would be limited to those minimum roads and trails required for access to the project features for construction, maintenance, and operation. If the State or counties desire construction of improved highways on levees or along canals, the cost of such highway work, over and above that required for the Federal access roads, should be borne by local interests.

78. Division of cost.--The total cost of the proposed comprehensive improvement has been divided between the Federal Government and local interests according to the following principles:

(a) The project as a whole produces benefits from flood control, navigation, and preservation of fish and wildlife, and benefits from increased use of land. The cost of the project has, therefore, been divided between these two groups of uses according to the proportion their benefits bear to the total benefit, as follows:

(b) The cost of the part of the project which is for flood control, navigation, and fish and wildlife preservation (35.4 percent) has been considered as a Federal responsibility.

(c) The cost of the part of the project which is for increased land use (64.6 percent) should be divided between the Federal Government and local interests, because both the Nation as a whole and the local people share in benefits due to increased use of land.

(d) Division of the part of the cost chargeable to increased [and use has been made by recognizing the established Federal practice with irrigation projects which results in dividing the first cost equally between the Federal Government and local interests; and in charging local interests with costs of maintenance and operation. This has the effect, on the average over a number of projects, of dividing the

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(f) Application of the principles described in subparagraphs (a) to (d) above results in the following division of the total economic cost of this project:

79. Summary. of local requirement.--(a) The flood-protection, drainage, and water-control features of the comprehensive development would operate jointly to produce large benefits attributable to increased or higher use of both agricultural and urban property. The preponderance of such benefits over benefits from other sources indicates that substantial local-cooperation is warranted. Consequently, it is believed that local interests should be required to make a contribution to the cost of the project over and above the minimum requirements of flood control law. The appropriate contribution, over and above other requirements of local contribution, required to meet the proposed division of the total cost of the project is as follows:

of years in which the project, is developed and operated, and need not be forthcoming as a whole before the project is started. Construction of urgently needed features of the plan should be started as soon assurances of local cooperation, satisfactory to the Secretary of the Army, are provided.

80 (a) Division of first cost and maintenance cost.--First cost: On the foregoing basis of local contribution, the first cost would be divided as follows:

83. Federal agencies. -- The interests of other agencies of the Federal Government in the area under consideration are summarized briefly in previous paragraphs. The comprehensive plan has been developed with full consideration of the functions of those agencies and with their plans for this area as indicated in the following subparagraphs.

plan proposed in this report. The benefits to preservation of fish and wildlife included in this report were furnished by that Service, and its reports setting forth needs and recommendations are being furnished with this report as appendix F. Comparison of the recommendations of the Fish and Wildlife Service with the comprehensive plan shows that the expressed desires of the Fish and Wildlife Service have been met on all essential points.

affected counties and other interested local agencies. Resolutions and statements from many of these agencies are also being furnished as exhibits with this report.

    Conclusions -- It is concluded that the comprehensive plan pro: pc, ~1 in this report provides for the most feasible and economical solution of flood control and related water problems in central and southern Florida, and that it should be adopted to provide the flood protection now urgently needed, and as a long-range plan for the control and use of the water resources of the area. Its cost will necessarily be large, but-its benefits will be larger, and its ultimate development appears essential to further growth of this area and stabilization of its economy. The large Federal interest in this project is reflected by the benefits from flood control and navigation which it would produce, and its local benefits would warrant the substantial participation by local interests proposed in this report.

87. Recommendations.--It is therefore recommended:

    (a) That the exiting Federal project for the Caloosahatchee River and Lake Okeechobee drainage areas be modified .and extended to provide for the comprehensive plan for flood control and other purposes in central and southern Florida, as proposed in this report at an estimated Federal first cost of $171,041,000, and $669,000 for annual maintenance and operation, and at an estimated non-Federal first cost of $37,094,000 and $3,034,000 for annual Maintenance anti operation, and as so modified and extended, be approved for prosecution by the Federal Government under the direction of the Secretary

of the Army and the supervision of the Chief of Engineers, with such modifications thereof and changes therein as may be found desirable by the Secretary of the Army upon recommendation of the Corps of Engineers.

    (b) That the works for flood control and there purposes described in this report be maintained and operated by the Federal Government subject to the requirement that the State of Florida or other responsible local interests ]pay the annual' cost of such maintenance and operation after Completion of the works; except that the Secretary of the Army may turn over certain essentially local features to responsible local interests for operation in accordance with regulations prescribed by the Secretary of the Army upon the recommendation of the Chief of Engineers; and except that the cost of maintenance and operation of control works, navigation channels and locks, and levees of Lake Okeechobee and its outlets be borne by the Federal Government.

    (c) That no money appropriated for the prosecution of features of this plan be expended on construction until the State or other responsible local interests shall have furnished assurances satisfactory to the Secretary of the Army that they will provide, without cost to the United States, all lands, easements, and rights-of-way necessary for construction and operation of such features, and that they will pay such cash contributions, and pay for relocations as may be required for these purposes, and hold and save the United States free from damages due to the construction works.

    (d) That this project as modified and extended be considered as one for flood control and related purposes, and that its further consideration be under the provisions of flood control laws.

(e) That, in addition to previous authorizations for the Caloosahatchee River and Lake Okeechobee drainage areas in Florida, there be authorized to be appropriated by the Congress annual sums adequate for initiation and prosecution of the comprehensive plan in a logical step-by-step manner as described in this report.

WILLIS E. TEALE,

Colonel, Corps of Engineers, District Engineer, Jacksonville, Fla.