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un
Review of the
Army Corps of Engineers
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.
R· Ill
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FEASIBILITY STUDY
.
Committee to Review the Corps of Engineers
Restructured Upper Mississippi River-lllinois Waterway
Draft Feasibility Study
Water Science and Technology Board
Division on Earth and Life Sciences
Transportation Research Board
NATIONAL RESEARCH COUNCIL
OF THE NATIONAL ACADEMIES
THE NATIONAL ACADEMIES PRESS
Washington, D.C.
www.nap.edu
.
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THE NATIONAL ACADEMIES PRESS 500 Fifth Street, N.W. Washington, DC 20001
NOTICE: The project that is the subject of this report was approved by the Gov-
erning Board of the National Research Council, whose members are drawn from
the councils of the National Academy of Sciences, the National Academy of Engi-
neering, and the Institute of Medicine. The members of the committee responsible
for the report were chosen for their special competences and with regard for ap-
propriate balance.
This study was supported by Contract No. DACW17-03-C-0003 between the National
Academy of Sciences and the Department of the Army. Any opinions, findings, conclu-
sions, or recommendations expressed in this publication are those of the authoress and do
not necessarily reflect the views of the organizations or agencies that provided support for
the project
International Standard Book Number 0-309-09133-0 (Book)
International Standard Book Number 0-309-52965-4 (PDF)
The Upper Mississippi River-Illinois R7ate~ay Draft Feasibility Study: Interim Report is avail-
able from National Academies Press, 500 Fifth Street, N.W., Lockbox 285, Wash-
ington, DC 20055; (800) 624-6242 or (202) 334-3313 (in the Washington metro-
politan area); Internet, http://www.nap.edu
Cover design by Michael Dudzik, the National Academies Press. Photos courtesy of
John Boland, Johns Hopkins University and U.S. Army Corps of Engineers websites:
http://www.mvr.ausace.army.mil/navdata/Pics/12~92~.jpg and ~,~
~ . Photo on back cover cour-
tesy of Jon Duyvejonck, U.S. Fish and Wildlife Service.
Copyright 2004 by the National Academy of Sciences. All rights reserved.
Printed in the United States of America
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TI Ir ~ I ATOMS I A I A ~ A Ire `~ -
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The National Academy of Sciences is a private, nonprofit, self-perpetuating so-
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COMMITTEE TO REVIEW THE CORPS OF ENGINEERS
RESTRUCTURED UPPER MISSISSIPPI RIVER-ILLINOIS
WATERWAY DRAFT EASIBILITY STUDY
JOHN J. BOLAND, Chair, John Hopkins University, Baltimore, Maryland
PATRICK BREZONIK, University of Minnesota, Minneapolis
ROBERT K. DAVIS, University of Colorado, Boulder (retired)
LEO M. EISEL, Brown and Caldwell, Golden, Colorado
STEPHEN W. FULLER, Texas A&M University, College Station
GERALD E. GALLOWAY, Titan Corporation, Fairfax, Virginia
LESTER B. LAVE, Carnegie Mellon University, Pittsburgh, Pennsylvania
I
Preface
The U.S. Army Corps of Engineers has a long history of managing
navigation, floods, and other water-related issues on the Upper Mississippi
and Illinois Rivers. A recent chapter in that history is the problem of wa-
terway congestion at several locks on the lower portion of the Upper Mis-
sissippi River. Barges and other vessels must often wait in queues to transit
these locks, with delays ranging from several hours to several days. The
Corps has studied this problem and its possible solutions since the late
1980s, producing a draft feasibility study in 2000 and an interim report on a
restructured feasibility study in 2002. The restructured feasibility study is
scheduled for completion late in 2004.
This committee was convened to review and provide advice on the
most recent phase of the Corps' analytical efforts. The extended duration
of the Corps' study is a result of the issue's considerable complexity and of
Corps efforts in correctly framing the issue as a systems-level problem, as
well as the sometimes conflicting economic and cultural values related to
managing this huge and valuable river system.
This report follows the committee's initial meeting, in which discus-
sions with the Corps, several stakeholders, and among ourselves led to sev-
eral first impressions and recommendations regarding the Corps' ongoing
restructured feasibility study. Although our committee has much to learn
about the Upper Mississippi and Illinois Rivers, waterway traffic, and river
ecology, we have been impressed by the complexity of these issues and
. .
v''
. . .
acts
Preface
their importance for local people and communities, the nation at large, and
the role of U.S. grain production in the world. We look forward to learning
. . .
more as our investigation proceec as.
We thank the Corps' professional staff for providing an abundance of
relevant information in a timely and helpful manner. At our September
2003 meeting in Washington, D.C., we spoke with Brigadier General Don-
ald Riley, Colonel Duane Gapinski, and Corps study team members Denny
Lundburg, Kenneth Barr, and Richard Manguno, among others. We have
also received excellent advice and assistance from William Dawson and
Richard Worthington at Corps Headquarters in Washington. In speaking
with these Corps staff and in learning more about the study, we have come
to respect the pressures under which they are operating and appreciate the
open exchanges of ideas and information we have had with them. We also
appreciated the opportunity to speak with and learn from Christopher Bre-
scia, Scott Faber, Rick Moore, Holly Stoerker, and Sander Toth at our Sep-
tember 2003 meeting.
This report was reviewed in draft form by individuals chosen for their
diverse perspectives and technical expertise in accordance with the proce-
dures approved by the National Research Council's (NRC's) Report Review
Committee. The purpose of this independent review is to provide candid
and critical comments that will assist the institution in making its published
report as sound as possible and to ensure that the report meets institutional
standards for objectivity, evidence, and responsiveness to the study charge.
The review comments and draft manuscript remain confidential to protect
the integrity of the deliberative process. We thank the following for their
reviews of this report: Phillip Baumel, Iowa State University; Stanley A.
Changnon, University of Illinois; lose A. Gomez-Ibanez, Harvard Univer-
sity; tames Heaney, University of Colorado; Leroy Poff, Colorado State
University; Herald L. Schnoor, University of Iowa; and Leonard Shabman,
Resources for the Future.
Although the reviewers listed above have provided many constructive
comments and suggestions, they were not asked to endorse the conclusions
or recommendations, nor did they see the final draft of the report before its
release. The review of this report was overseen by Walter R. Lynn, Cornell
University, appointed by the Division on Earth and Life Studies, and by
Frank H. Stillinger, Princeton University, appointed by the NRC's Report
Review Committee, who were responsible for making certain that an inde-
Preface
MIX
pendent examination of this report was carried out in accordance with in-
stitutional procedures and that all review comments were carefully consid-
ered. Responsibility for the final content of this report rests entirely with
the authoring committee and the institution.
The committee is particularly grateful for the hard work and wise coun-
sel of the prior NRC committee that reviewed the Corps' 2000 draft feasi-
bility study and was chaired by Lester Lave. We have also benefited from
the constant assistance and support of NRC staff members, including
Stephen Parker, Steve Godwin, Joseph Morris, and Anita Hall. Finally, we
are most indebted to Study Director Jeffrey Jacobs for the smooth and ef-
fective conduct of this review, as well as the considerable achievement of
making 11 authors seem to speak in a single voice.
John ). Boland, Chair
Contents
EXECUTIVE SUMMARY
1 THE CORPS OF ENGINEERS AND THE UPPER MISSISSIPPI
RIVER-ILLINOIS WATERWAY
Introduction, 6
Information Needs for the UMR-IWW Feasibility Study, 11
2 FINDINGS AND RECOMMENDATIONS
Spatial Price Model and Essence, 22
Managing Waterway Congestion, 25
Integrated Systems Planning, 27
Decisions, Implementation, and Institutions, 30
Engineering, 34
REFERENCES
APPENDIX A - SPATIAL EQUILIBRIUM MODELS AND
THE U.S. GRAIN SECTOR
APPENDIX B - NATIONAL RESEARCH COUNCIL BOARD
MEMBERSHIP AND STAFF
APPENDIX C - COMMITTEE MEMBER AND STAFF
BIOGRAPHIES
x
1
6
22
37
39
45
49
