Apparently you don't think we need to change the provisions for financing reconstruction of highways. Let me give you the benefit of our thinking on this. At a time of national disaster or when you have an emergency of sufficient proportion that the President would declare a disaster, Federal highways are not the only ones that are affected. In the disaster we had portrayed here, and the one we had in Indiana recently, of course, we had very little loss to highways, but when you have a big flood, avalanche, or earthquake, you not only have loss to Federal highways, you have loss to State, county and city transportation facilities. At this time, the county, the city, or the State is going to be taxed to its limit to try to restore these facilities for which it has the only responsibility. It is the only responsible agency. And at this time, it would be an extreme hardship to ask the State to also provide 50 percent, or whatever it might be, of the funds to restore the Federal highways.

Mr. ELLINGTON. Mr. Chairman, I speak to this more from experience on the State level than anywhere else. I have been on the State level so many years that I actually believe that we get better experience, we get a better job done, where the affected parties are all participating in the program. I think it is more economical. I think it serves the people best, because, after all, taxes are taxes, whether they be Federal or State taxes, and I think definitely, that a cooperative working agreement between the governments involved give you a better job, and a more inexpensive job.

Senator BAYH. Well, I am not suggesting, of course, that we don't have this cooperative venture in the original construction, but it has been our experience with some flooding in Indiana-I don't know whether you have had the same experience in Tennessee, apparently not-that it takes all the State dollars we have, usually, to try to reconstruct some of these farm-to-market roads. There is very little left, if we use the existing funds for the Federal thoroughfares, the Federal-State roads, the job is not done that should be done on the farm-to-market roads.

I am glad to get your thoughts on this.

Let me thank you, Governor, and all the rest of you gentlemen, for letting us have the benefit of your thoughts, and we would appreciate it, if as quickly as possible, you would let us have your thoughts on the Budget suggestions.

Mr. ELLINGTON. We will get it up immediately.

Thank you very much.

Senator BAYH. I notice one of our distinguished colleagues from Iowa is here. He has had a great deal of personal experience in disaster areas. One of his assistants was very helpful to us in the drafting of this legislation, and, Senator Hickenlooper, I understand that you are going to introduce our next witness.

I would like to apologize for keeping you waiting here. We had Governor Ellington, and we wanted to get the full benefit of his testimony.

We are glad to have you with us this morning.

STATEMENT OF HON. BOURKE B. HICKENLOOPER, A U.S. SENATOR FROM THE STATE OF IOWA

Senator HICKENLOOPER. Thank you, Mr. Chairman.

It is very nice of you to let me appear here this morning to present to you Mayor Horgan, of Dubuque, Iowa.

Dubuque was especially hard hit by this unprecedented flood which came down the Mississippi River. In fact, the flood exceeded the normal predictions of the Corps of Engineers and others, I think, at that time, and because the flood did so far exceed the prediction, the preparations were relatively not adequate, although they were full preparations, according to the predictions, and to the requests.

The damage was probably a great deal greater, and the disaster was really acute on the flats on the west side of the river there, in the industrial area, of Dubuque.

I have another meeting which I must go to. It is rather important at the moment, but I did want to introduce to you Mayor Horgan, who is well versed in the difficulties which they have had.

They have done a great deal of studies in Dubuque on this matter, and he is thoroughly capable of presenting their views to you, and I merely want to endorse his statement, and urge your consideration, which I know you will give to it.

Therefore, I do take pleasure in presenting to you Mayor Horgan, of Dubuque, and if I may be excused, I will go on to this other meeting.

Senator BAYH. Thank you, Senator Hickenlooper.

I know again how busy you are, and here again I apologize for keeping you waiting, because I know of your busy schedule. Senator HICKENLOOPER. It is all right, Mr. Chairman. Senator BAYH. Mr. Mayor, it is good to have you with us. We are anxious to have your thoughts on this subject which you, unfortunately, have had a personal relationship with in the recent past.

STATEMENT OF HON. ROBERT J. HORGAN, MAYOR, CITY OF DUBUQUE, IOWA

Mr. HORGAN. Thank you, Mr. Chairman.

At the outset, may I thank you for the invitation to appear as a witness before this committee in support of S. 1861, legislation to provide disaster relief.

During this year of 1965, the city of Dubuque experienced both victory and defeat during the record flood of the Mississippi River. The victory was in the temporary dike system which was built to protection a portion of our city. After expert review and study, a line of defense was drawn by our city engineer. It was along this line that we built our dikes. It was along this line that we held back the mighty river.

The defeat in this record flood was that we could not defend all of our city. It is for those who stood outside the dike that I speak today. For they also fought the river. They built dikes around their The built dikes around their factories. They built dikes around their homes. Though they fought the river day and night,

though they fought the river to its record-setting crest, they could not contain it.

Our whole city was thrown into this battle to hold the river. Our whole city was thrown into the cleanup operation. And now I speak for my city in this petition, so that we all will once again be a healthy and prosperous city.

In support of this petition, I submit the following exhibits A and B:

Preparations

EXHIBIT A

FLOOD FIGHT FACTS, DUBUQUE, Iowa, 1965

Flood plan was drawn in March 1962; flood areas for various river stages were determined and mapped by engineering survey.

In late March 1965, the city engineer was instructed to prepare for flood. April 1, 1965: City staff meeting held with all related outside flood fighting agencies; Weather Bureau officer forecast expected flood; flood fighting operation plan reviewed; flood fighting organization established and duty assignments made.

April 9, 1965: A second briefing and check meeting was held, written reports reviewed the situation estimated and the command "Go" was given for dike construction. The public was invited to this briefing.

April 10, 1965: Dike construction began.

April 16, 1965: Final check out and progress report meeting held.

A total of 350,000 sandbags were filled and put in place, 141 trucks and bulldozers were used on a 24-hour basis; and 6 radio networks were used for communication.

Personnel

Thirty-five hundred volunteers worked.

Red Cross, civil defense Salvation Army supplied staff and support services. Corps of Engineers provided full-time technical advisers.

U.S. Coast Guard patrolled river with 26 men.

National Guard patrolled dikes and flooded area with 126 men.

Iowa State Employment Service provided full-time volunteer supervision.
All city forces were put into flood fight.

Results

Protected in the flood area by 3 miles of temporary dikes were 4,815 people living in 1,461 housing units; 111 businesses and industries, employing 4,868 employees, plus the electric powerplant serving the city, a playground and recreation hall, 5 churches and 2 schools.

Flood fight mechanics

The Dubuque flood plain runs north-south about 4 miles in length and varies in width from one-half mile to a mile. At about 1% miles, measured from the south end, a dike was built across the flood plain, and a command decision, based on flood protection capability, was made to abandon all south of this dike. Abandoned to the flood were 192 people, living in 67 housing units; 148 businesses and industries, employing 2.179 employees.

49-751-65——5

In the south area extensive protective works were erected by private companies and people. All were overtoppled by the flood crest.

Cleanup

April 30: Cleanup operation plan presented to city staff and assignments made. Plan included street and building cleaning and pumping operations.

May 1: Cleanup operation starts.

May 19: Cleanup operations secured.

EXHIBIT B

Estimated total private and public flood damage in Dubuque

The sum of $6 million plus (includes flood fight cost, building damage, rehabilitation cost, loss of employee wages and loss of net profit).

Employees affected in establishments inundated or closed by the flood

Employees in plants closed throughout the flood period__
Employees in plants closed approximately 1 week----

Employees affected by the flood

2.179

3.521

5,700

Statistics from questionnaire survey by Dubuque Industrial Bureau Questionnaires were sent to 63 industrial and commercial establishments in the flooded area. Of these:

37 firms reported flood damage to real estate, building equipment, tools, machinery, and inventory of__.

42 firms reported flood control expense of-

9 firms reported miscellaneous expenses of

32 firms reported financial loss due to business interruption of... 57 firms reported a total loss of‒‒‒

Flood fight cost, physical damage cost, and employee payroll loss

$3, 141, 797

354, 549 197,980

608, 874

4,472, 402

The data on private business and residences was compiled by city building inspection department after an inspection of properties.

City costs were established by an analysis of city expenditures and damage by Federal and State teams of the Office of Emergency Planning :

Mr. HORGAN. In exhibit C, Mr. Chairman and members of the committee, I have listed for you the various industries that were affected, to give you and the committee an idea of the variety of businesses involved in this.

Finally, in exhibit D, we have the flood fight protection effort. (Exhibits C and D follow :)

EXHIBIT C

Total monetary loss due to flood control expense, actual damages, loss of revenue due to business interruption, flood cleanup and miscellaneous expense experienced by businesses: 57 firms reported total losses of $4,472,402,

For protection by temporary dike construction, dike operation, and sandbagging, and the construction of separate revetments—

The city spent-----

$368, 000

Plus 464,000 man-hours of voluntary labor valued at $1.25 per
hour___.

579, 000

Fifty-three percent of the number of businesses in the flood area were inundated.

Eighty percent of the number employed in the flood area suffered payroll loss.

Mr. HORGAN. This completes my formal statement. If you have any questions, Mr. Chairman and members of the committee, I will be glad to attempt to answer them for you.

Senator BAYH. Thank you very much, mayor.

I would like to ask a question or two, if I could, please.