JANUARY 19, 1977 PROPOSAL TO THE PORTLAND CITY COUNCIL FOR FORMATION OF A LOCAL IMPROVEMENT DISTRICT BY THE COLUMBIA SLOUGH DEVELOPMENT CORPORATION

This is a proposal to restore navigation on the Columbia Slough and provide flood protection to the affected areas by providing funding of the local matching share for a federal improvement project.

The Columbia Slough originally was connected at the east to the Columbia River, and the west to the Willamette River. It has been navigable for most of its length as long as man has inhabited the Northwest, first by native Indians who lived on its banks, and next by the early-day trappers and fur traders, who used the slough for their canoes to avoid the rough water of the Columbia.

Modern-day navigation dates to 1850, when Captain Lewis Love cut the fir trees from his donation land claim along the slough, formed a log raft, towed it with oxen down the slough to the Willamette, and sailed it up the Willamette to Portland sawmill using sails fashioned from old army tents.

In the early 1900s sawmills and shingle mills were established, and towboat operators brought in logs from other areas for these mills. This continued until after the 1948 flood.

Meanwhile, in 1919 the City of Portland dredged a canal just east of the present Columbia Edgewater Country Club connecting the Columbia River with the Slough to create a year-around current. After the 1948 flood, the City Canal was plugged at both ends, causing the stagnation of the slough waters, which became so polluted with industrial wastes and city sewage that the mills were forced to move away and commercial navigation stopped.

Over the years the Portland Chamber of Commerce and other interests had supported requests of slough mill owners for a navigation project. The Corps of Army Engineers had rejected these early requests because it could not substantiate cost-to-benefit ratios. But in 1950, the Corps recommended approval of a new project to improve the slough and Congress designated it a federal navigable waterway, stipulating that a local sponsor must be named and local matching funds must be put up. By then, however, the original industries had moved away and were no longer interested. The project moved to the back burner, and stayed there for lack of matching funds from a local sponsor.

In more recent years new industries have moved in along the south side of the slough. Construction of a sewer has improved water quality. The industries now are much interested in funding the 1950 navigation improvement project.

Specifically, these property owners are here today to request the formation of a local improvement district to raise the local matching funds for the federal project through an assessment on the private property fronting on the slough. The owners of virtually four-fiths-78.83 percent to be exact-of the affected property have signed the necessary documents requesting formation of a local improvement district. The twenty-four property owners out of a total of thirty-seven who have signed represent all of the major parcels of property to be included. The thirteen owners who have not signed for the most part represent the smaller parcels, and in many cases are out-of-town residents who have been difficult to contact.

In essence, the signers are proposing to provide private funding of the local sponsor’s share to activate the 1950 federal plan to widen and deepen the Columbia Slough from the Willamette River to 19th Avenue. The work would include removing snags and dredging to provide a channel 100 feet wide and ten feet deep the entire length of the project. It includes straightening the “S” curves near Bybee Lake, and dredging a 500-foot turning basin near Union Avenue. A new bridge would provide additional access to the Rivergate industrial district.

The railroad bridge will have to be modified to provide proper clearance for barge traffic. But this work should not be included in the federal project, because under terms of its permit for crossing the Slough, the railroad must make the changes necessary to provide for navigation as its own expense.

We are proposing that culverts be installed in the sand plugs at both ends of the old City Canal to open the Slough to a flow from the Columbia, thereby improving water quality.

Estimated costs of these improvements to provide a first class navigable waterway for barge traffic are placed at approximately $7,900,000, or an annual cost of $565,000. Against this we can weigh initial annual benefits of approximately $900,000. This benefit estimate is based on a survey of potential navigation uses by existing business on the waterway. It seems reasonable to assume the benefit-cost ratio would improve even more as availability of the waterway attracted new and expanded uses. For example, the north shore of the Slough would be opened up for development of warehouses and other facilities related to waterborne commerce. The sponsors are convinced the developments triggered by the Slough waterway project would provide a substantial boost to the local economy, creating both increased payrolls and increased tax base through higher property values.

Some work to improve recreation and fish and wildlife aspects is proposed. This would include a boat ramp near Kelly Point Park to provide a small boat access to the Slough waterway. Another item would be a tidegate on the channel connecting to Smith and Bybee Lakes to stabilize the water level in the lakes, thereby enhancing the environment for fish and wildlife. Maintenance of Smith and Bybee Lakes as a natural area is probably the best use, considering the heavy algae pollution which prevents their use for water contact recreation.

Flood protection work is also an essential part of the project, but a determination as to what, where and how much will have to await a detailed engineering study which reflects changed conditions since previous estimates. It is recognized that whatever is necessary to protect the project area from flooding should be done.

You are all aware of the Port of Portland’s much-publicized plan for developing the Rivergate area by plugging the Columbia Slough near its mouth by putting in a fill over which they could lay a railroad track and truck road. This plan, conceived about five years ago, was snagged last year when the Corps of Engineers balked at the heavy proposed expenditure for recreational development.

It might be well to look quickly at some of the major points of difference between the Port’s plan and that proposed today by the property owners through a local improvement district.

The Port’s plan would close the Slough permanently and deny its use for commercial navigation and pleasure boating forever. Large amounts of energy could be required for pumping. Water quality would deteriorate and the polluted Slough would become a useless eyesore.

Our plan would open a new waterway for commerce and recreation. It would improve water quality in the Slough.

Both plans would enable the further development of the Rivergate industrial district, but our plan would also provide sites for new waterfront commercial development along the Slough waterway, with resulting investment, tax base and new jobs.

The Port’s plan calls for the expenditure of several millions in recreational developments in the area, principally around the lakes. Our plan considers the polluted state of two lakes because of the heavy recreational expenditure. Our plan would leave the lakes and surrounding wetlands as a natural area, with enhancement of fish, waterfowl and other wildlife.

And finally, the Port plan would use public funds for the local share of the federal project. Our plan would use private funds from an assessment on the property owners who would benefit from the waterway.

On its merits we believe our plan is best for all concerned. We urge the Council to approve the formation of a Local Improvement District as the necessary first step to carry it through.