Estabrook Dam Removal
Gratitude & Restoration.
In 2018, after more than ten years of contentious public meetings and several lawsuits, the 80-year old Estabrook Dam has been removed. Removal of the Estabrook Dam is a win-win for the Milwaukee River and the community, as well as for many of our supporters that have attended countless meetings, sent many emails, and made many calls over the years. Dam removal will improve water quality and fish passage, and restore natural ecological function to this portion of the Milwaukee River.
Milwaukee Metropolitan Sewage District (MMSD) led the demolition efforts and committed an additional $1 million to engineering, design, and planning around restoration of the streambanks and former impoundment area created by the dam. In addition, efforts are also underway to envision and design fish passage for Estabrook and Kletzsch Park Falls. MMSD received a total of $2.3 million in grants that fully covered the costs of removal.
History
Milwaukee Riverkeeper has joined with citizens, fisherman, property owners and elected officials to call for the removal of the Estabrook Dam. Removing the dam will save millions in taxpayer money, alleviate flooding, and improve water quality and habitat for fish and wildlife.
Milwaukee County built Estabrook Dam in 1937 in order to elevate water levels for recreational purposes. Its construction required both the blasting of bedrock upstream and river straightening to reduceflooding. The Dam has 3 parts: a gated section (with “sharks teeth” that capture woody debris and protect dam gates); the spillover section, which acts like a waterfall when the dam is closed; and an island that the gated and spillover sections rest upon. Historically, the Dam was closed during summer months and opened from fall through spring.
Over time, Milwaukee County failed to maintain and repair the Dam per State Dam Safety regulations. In 2009, due to hazardous conditions created by the ill-maintained structure, the Wisconsin Department of Natural Resources (WDNR) ordered the County to open the Dam gates until the County repaired or abandoned the Dam. The original deadline for this work was July 27, 2012, which was subsequently extended by WDNR to December 31, 2014 and again until December 31, 2016.
Since the County was not obeying DNR orders, Milwaukee Riverkeeper sued Milwaukee County for failure to operate and maintain the Dam in good working condition, and in 2012, the Milwaukee County Circuit Court declared Estabrook Dam a public nuisance. The County prepared an Environmental Assessment (EA), which identifies and analyzes the alternatives available to address the Dam, including repair, a rock ramp alternative, or removal of the Dam. The alternative the County chooses must comply with both the WDNR’s repair/abandon order and the Milwaukee County Circuit Court’s order to remedy the nuisance. If the County chooses an option that does not comply with these Orders, Milwaukee Riverkeeper will go back to the WDNR and to the Court to advocate for a remedy that fully abates the nuisance.
FAQs
What is the current status on removing the Estabrook Dam?
Why is an Environmental Impact Statement being conducted?
The WDNR completed it’s EIS on the Estabrook Dam in early April 2017. Unfortunately, the WDNR failed to consider removal as a reasonable alternative to repairing the Dam.
It should also be noted that Milwaukee County may also need Army Corps of Engineers and FEMA approvals for any major project affecting wetlands or water levels during flooding events, which would also likely require an Environmental Assessment.Furthermore, the EIS contains helpful, scientific data and facts to provide a road map for the County to make an informed decision, rather than one based on emotion or politics.
What are the benefits of removal versus repair?
The Dam causes major water quality problems. Dams impound or back up water upstream, which can increase water temperatures. Warm water holds less oxygen than cold water, whichharms fish and other aquatic life. Warm water, in combination with excess nutrients, exacerbates algae growth. When algae are broken down naturally in the stream by bacteria, more oxygen is consumed, which can decreaseoxygen levels.This segment of the Milwaukee River (as well areas north to Cedarburg and south to Lake Michigan) is part of the Milwaukee Estuary “Area of Concern,” designated as such in 1987 due toharmful historical modifications and pollutants that are considered toxic contaminants.
b) Sedimentation
Sediment is another concern. Dams cause sediment to build up in the impoundment area, which can negatively affect fish and mussels. The lack of sediment moving downstream of a dam starves downstream areas of sediment needed to create riparian habitats, sandbars, floodplains, and other river features. Eventually, an impoundment will fill up with sediment, impairing water quality and recreational use,andmust be dredged, which is very costly.
Historically, the County operated the Estabrook Dam by opening and closing the gates on a seasonal basis (open in the fall and close in the spring). When the gates were open, large amounts of sediment would be flushed downstream in one big release rather than slowly over time. These large volumes of sediment can cause harm to fish eggs, mussels, and other aquatic life downstream. While some sediment movement is natural and essential to create riparian habitat and to provide nutrients to downstream areas, these large flushes are unnatural and negatively impact the river system.
Sedimentation over the years has made the impoundment very shallow, even prior to 2009 when the Dam was ordered open. This can worsen water temperature and oxygen issues, as the depth of water column decreases in the impoundment.
c) Fish impediment
Impediment of fish passage is another harm caused by the Dam. Removal of the Dam would allow fish to swim upstream to spawning habitats. Healthy and sustainable fisheries are important to paddlers, fishermen, and the community at large. Ozaukee County spent over $8 million upstream to improve fish passage, and the removal of Estabrook Dam would expand the benefit of those projects.
d) Unnatural Water Levels
The historic Dam operations created unnatural water level manipulations. These abnormal seasonal fluctuations can cause “dry out” or “freeze out” of amphibians and other aquatic life that live in the impoundment. They lay their eggs along the shallow shoreline area and when that water disappears with the opening of the gates, the eggs or individuals dry and/or freeze. While the impoundment creates seasonal and limited recreational opportunities, it also increases flooding on properties located upstream of the Dam and within the Milwaukee River floodplain.Removing the Dam would also restore the natural and wild aspect of the Milwaukee River in the Estabrook and Lincoln Park areas.Overall, the ecological health created by a free flowing river offers greater long term value than maintaining the impoundment.
e) Recreation
Recreational opportunities, such as, paddling and fishing would be improved with Dam removal. Removing the Dam would eliminate motorized boating, however it would also remove safety hazards for other recreational uses such as swimming, fishing, kayaking and canoeing.
f) Cost
The estimated cost of repair ($5.13 Million) is three times the estimated cost of removal ($1.67 Million). Why? (see question 5 below).
Why do people want to keep the dam?
How much does dam removal cost versus repair?
Alternative | Estimated Capital Cost | Estimated Annual Operations and Maintenance Cost | Total Present Worth Estimated Cost (assuming 20 year life expectancy) |
Dam Removal | $1,674,000 | $0 | $1,674,000 |
Rock Ramp Option (gate section removal and 6.3 ft. high rock ramp constructed) | $2,419,000 | $55,000 | $3,318,000 |
Dam Repair | $2,518,000 | $160,000 | $5,134,000 |
The estimates in the table are 3 times higher to repair the Dam than to remove it. The operation and maintenance costs for repair do not include administrative costs associated with state and federal permitting, nor future dredging costs when sediment builds up in the impoundment. The repair option also does not include a realistic cost for fish passage. Leaving a few gates open does not mean that the fish will be attracted to those areas or that they will be able to swim upstream as proposed by MRPA.The EA states that repairing the Dam now will provide an approximate 20 years of additional use with proper operation and maintenance. The Dam will be nearly 100 years old at that time, rehabilitation costs are anticipated to grow, and rebuilding of the Dam will likely be the next option.
Is dredging considered as part of removal costs?
Dredging to enable navigation was not included in the EA. If the Dam were repaired, there would likely be dredging costs for sediment removal in the near future in order to keep it open for motorized boat recreation. The costs associated with the continual maintenance and operation of the Estabrook Dam is a poor use of taxpayer money. The best option is to return the river to a natural, free-flowing state.
What are the structural and operational problems of the dam?
Does the dam structure reduce or cause flooding?
A new hydraulic analysis by the Southeast Wisconsin Regional Planning Commission (SEWRPC) has shown that when the Dam gates are closed, flood risk increases upstream. In a 100-year storm, water elevations would be increased by up to 1.5 feet at the Dam. Historically, the County has not employed or designated a dam operator and there were problems opening and closing gates during heavy rains. If the County waited too long, it was impossible to open the gates due to the pressure from the water. WDNR’s current operational order requires the County to only drain 6 inches of water at a time, although the County has not operated the Dam in that way. Several of the gates have not worked properly for years.
Hypothetically, if the County Board decides that the existing policy to repair the dam will stand, then the County will need an operational order from WDNR. That process will determine how the dam will be operated in the future. It is unlikely the DNR will allow the County to operate the dam the way that it did historically due to the damage that gate opening and closing causes to the river and wildlife. In other places in the State, the WDNR has been requiring “full pool” impoundments, meaning that the gates would have to remain closed permanently except during rain events. If the gates were closed permanently, flooding would become an even more significant issue for the homeowners on the impoundment and upstream. Milwaukee County could also be liable for future flood damage if the Dam gates were not opened in a timely fashion during major storm events. Flood insurance premiums are higher for upstream residents as a result of the Dam. Removal of the Dam would likely decrease those premiums.
Does the dam help to replicate the original condition of the Milwaukee River?
Dam removal will not return the river to its original state, but repair doesn’t best replicate the original condition of the Milwaukee River either. No alternative currently under consideration by Milwaukee County would do that. Removing the dam will restore the river to a natural condition and to a free-flowing river. A natural state that is the most protective of water quality and wildlife habitat includes removal of the dam.
What will happen to the sediment accumulated in the impoundment?
What about current development and property owners?
Not every dam can or should be removed, but it makes sense to take a fresh look at the facts and make a reasoned decision. It does not make sense to spend millions to fix this dam, given the maintenance problems that are likely to continue, to only have to spend millions more in the near future on more repair costs, rebuilding, or removal of the dam. Instead, it is best to get on with the restoration work now and try to lessen impacts to existing infrastructure. Restoration will improve access to the river which will increase the area’s recreational use as well. Arguably, the water level after removal of the dam will likely be the same as it is today with the gates open. Removal of some of the contaminated sediments will also help with navigation for human-powered craft.
Documents & Additional Resources
2016
2015
2014
2011
2010
2009
Dam_matrix
Estabrook Dam Repair Order, July 2009
Estabrook Dam Municipal Dam Grant, October 2009Full position paper on Estabrook Dam
The following groups signed on to Milwaukee Riverkeeper’s position paper calling for the removal of the Estabrook Dam in Glendale:
Sierra Club Great Waters Group
Trout Unlimited-Southeast WI Chapter
Milwaukee Steelheaders
Milwaukee Lake and Stream Fly Fishers
Milwaukee County Conservation Coalition
Greater Milwaukee Green Party
Glendale Natural Areas Group
Riverwest Neighborhood Association
Do you live in the floodplain?
1) When google maps opens, simply type your full address into the search bar at the top of the screen and then click the little magnifying glass next to the search box.
2) A placemark will appear on the map; use the ” ” and “-” buttons on the bottom right corner of the map to zoom in and out, and click the map and drag your mouse to pan across the map.
3) You can turn the 2 layers (100 yr flood and 500 yr flood, located in the upper-left portion of the screen), by checking and unchecking the checkbox next to the layer name.
The Parks Department is very understaffed right now and it has been for years. The Parks Department is in charge of operating the Dam, and they have said they cannot ensure that there will be a staff person available during a storm to open the gates. They are calling for removal. The Parks Department has concerns about how the Dam has been operated in the past and how it will be operated in the future. A responsible policy would take into account the limitations of the staff. Based on the facts, removal is best for the river and the community as a whole in order to avoid these issues related to flooding and the operation of the dam.
In the News
Milwaukee Riverkeeper Press Releases
MilwaukeeRiverkeeper_PressRelease_CountyBudgetFY2015_11.14.14
Press Release: Commending MMSD and CITY, May 4, 2015
Press Release: Open Meetings Violation, June 19, 2015
MilwaukeeRiverkeeper_PressRlease_NewEstabrookDamRemovalEfforts_1.28.16
Press Release: Third Lawsuit Filed Against Milwaukee County, March 21, 2016
Press Release: Challenge to DNR Findings on Estabrook Dam Filed, May 25, 2016