DUPAGE COUNTY, ILLINOIS

DRAFT 10.9.15

National Disaster Resilience Competition

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Executive Summary Exhibit A

DUPAGE COUNTY, ILLINOIS

Executive Summary Exhibit A

DUPAGE COUNTY, ILLINOIS

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Northeastern Illinois’ strength lies in the geography and natural assets upon which this great metropolis was

originally positioned. Located on the divide between the Great Lakes and Mississippi River watersheds, the region

is a key steward of 84% of the country’s freshwater. This position has ensured its spot as the nation’s central

transportation hub, handling 50% of all rail freight.

At the heart of this region is DuPage County. DuPage is the second largest county in Illinois with 932,126 residents

and spanning 336 square miles, 39 municipalities and nine townships. DuPage County is home to more than

750,000 jobs, 16 colleges, 7 hospitals, 2 national laboratories, 300 miles of trails and 23,000 acres of forest

preserve land.

However, the DuPage County and the region are not without significant stressors. Notably, chronic and repetitive

flooding takes a devastating economic, environmental, and social toll. While northeastern Illinois does not have

well-known mega-storms like Hurricane Katrina or Superstorm Sandy, small, frequent storms regularly flood

homes, businesses, and communities, as well as drain polluted runoff into Lake Michigan and the Mississippi River.

To improve the livability and resilience of the region, an approach to build the adaptive capacity of the most

vulnerable communities and populations within them is necessary. For that reason, DuPage County is in an integral

member of the Northeastern Illinois Resilience Partnership, a multi-jurisdictional, bipartisan alliance, intends to

pilot, scale and collaborate on successful resilience building strategies across the region and state. With a

minimum commitment of 5 years, the Partnership will serve as a model for a network of regional resilience

partnerships that will form across the state, with the aim of sharing lessons learned and advancing best practices.

In the short-term, each member of the Partnership has created pilot project s within their own jurisdictional

boundaries that may be scaled throughout the region and state. DuPage County’s Lower East Branch Pilot Project

is demonstrated throughout Exhibits C through G.

Exhibit C: Capacity

DuPage County’s internal capacity to carry out large-scale and innovative projects is comprehensive, made more so

by substantial partnerships throughout both the County and greater northeastern Illinois. These partnerships

demonstrate robust cross-jurisdictional and multi-disciplinary capacity to carry out complex, resilient strategies

followed by long-term commitments.

Exhibit D: Need

Mentioned previously, the region as a whole is subject to devastating floods that may be manageable for some

populations, but are all-consuming for more vulnerable populations. Further, risks from threats and hazards will be

exacerbated, particularly for vulnerable populations, with changing weather patterns associated with climate

change that DuPage County and the region is already experiencing.

Exhibit E: Soundness of Approach

Prior to developing strategies to increase resilience, DuPage County worked extensively with stakeholder groups to

identify existing needs in local communities. DuPage County heard from highly affected residents and business

owners about their concerns within their communities, such as health implications of flooding or limited access to

critical or emergency services during extreme weather.

Exhibit F: Leverage

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DuPage County is exploring partnerships across public, private and nonprofit sectors to approach financing in a

sustainable and attainable way for both this project and investments moving forward.

Exhibit G: Long-Term Commitments

DuPage County and the Partnership have already taken several steps toward long-term resilience in in

communities locally and statewide, as well as committed to future initiatives. In the short-term, DuPage County

hopes to begin seeing measureable success through attainable programmatic, institutional and behavioral changes

that are currently being implemented.

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currently being implemented.

Threshold Requirements Exhibit B

DUPAGE COUNTY, ILLINOIS

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General Section

As exhibited in the following section, DuPage County’s application is compliant with the threshold requirements as

stipulated by the Notice of Funding Announcement (NOFA) for the U.S. Department of Housing and Urban

Development’s (HUD) Community Development Block Grant National Disaster Resilience (CDBG-NDR) Competition.

The County is also compliant with incorporated requirements of Section III.C.2 of HUD’s General Section for Fiscal

Year 2014 Discretionary Programs.

Eligible Applicant

HUD identified DuPage County as an eligible applicant for the CDBG-NDR.

Eligible County

HUD identified DuPage County as an eligible county with a Qualified Disaster, Illinois Severe Storms, Straight-Line

Winds and Flooding (FEMA-DR-4116) in April 2013, that prompted a Presidential Disaster Declaration under the

Stafford Act (PL-113).

Most Impacted & Distressed Target Areas with Unmet Recovery Needs

HUD recognizes DuPage County as most impacted and distressed because of the Qualifying Disaster. County

entities received a total of $100 million in private and federal insurance, grants, assistance and loans for property

repairs, projects and other mitigation activities because of the disaster. Nonetheless, a gap of $67.5 million in

property acquisition for 269 flood-prone and substantially damaged housing exists. Nearly $140 million is

necessary for infrastructure projects within the East Branch Watershed alone.

Unmet Recovery Needs from the Qualifying Disaster remain countywide. DuPage County has identified more than

223 homes that meet flood-prone criteria and FEMA reported an additional 108 repetitive loss structures in

DuPage County meeting the substantial damage threshold under NFIP. Using $6 of $31.5 million in CDBG-DR and

all $2.8 million in FEMA’s Hazard Mitigation Grant Program (HMGP) funds, the County is purchasing 67 properties

impacted by the Qualifying Disaster. A funding gap of an estimated $67.25 million leaves 269 properties either

unlivable or vulnerable to future flooding events. The County allocated the remaining $25.5 million of the CDBG-

DR funds to shovel-ready projects to protect an estimated 100 residential structures and businesses countywide

(Attachment E). In the East Branch Watershed alone, the Steering Committee members identified a minimum of

$139.9 million (Attachment E) outside of CDBG-DR and HMGP funds in flood mitigation and drainage projects to

improve the watershed’s capacity for future flooding.

The target area, in particular, has 138 properties that remain damaged from the Qualifying Disaster. Of these, 16

meet the 50% substantial damage threshold and must be elevated or purchased; 37 have outstanding repairs at or

above 25% of the property value; and the remainder have various other unmet needs. An additional $14.5 million

to purchase the 53 homes above the 25% damaged threshold and $2.5 million to raise the remaining 85 homes is

necessary beyond the existing CDBG-DR and HMGP funding allocations. Repairing the homes – that are eligible – to

pre-flood conditions has little to no resilience value as both historic weather events and future climate predictions

indicate more extreme rainfall frequencies than those recognized in Bulletin 70, the current standard for design

work in Illinois.

The target area also has damage to permanent public infrastructure (FEMA Category D) that remains unrepaired

due to inadequate resources and for which no CDBG-DR or other funding is available. In the 1960s, the State of

Illinois’ Division of Waterways constructed a berm in the target area to protect an area of 182 homes and 11

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businesses up from to a 50-year flood. Since its construction, these properties experienced significant flooding

beyond the berm’s capabilities in 1972, 1987, 1996, twice in 2008 and last in April 2013, which is compounded by

settling and erosion overtime, as well as increased flow of the East Branch DuPage River due to development.

During the Qualifying Disaster, the berm sustained $475,605 in damages, according to engineers’ estimates

(Threshold). Further, a 2012 engineering study estimated it would require $8.5 million to maintain the levee to at

50-year flood protection alone, which catastrophically failed six times in that same period of time (Threshold).

Because maintenance of the berm would only provide a temporary solution for minimal rain events, existing

CDBG-DR resources were not adequate for the project and instead allocated to other unmet needs throughout the

County.

In addition to substantial housing and infrastructure needs, the target area is in need of economic revitalization.

The Qualifying disaster damaged an estimated XX businesses in Lisle, some still in need of flood-proofing repairs.

Within the target area, a for-profit, long-term nursing home, Snow Valley Nursing and Rehabilitation Center,

sustained several feet of water on its first floor that prompted an emergency evacuation via boat of its 51

residents and 50 to 99 staff members. The facility never reopened following the Qualifying Disaster, and the

property is nearly impossible to redevelop due to its placement within the 100-year floodplain. In 2005, the

facility’s gross revenue was $2,386,007.

Eligible Activity

DuPage County certifies that all activities undertaken by the County will comply with the CDBG-eligible activities

found in Section 105(a) of the Housing and Community Development Act.

Resilience Incorporated

With an expected 20% increase in precipitation due to climate change, damages in East Branch Watershed will

increase exponentially in amount and frequency with every storm event. DuPage County is committed to

introducing resilient strategies into the area, including sustainable and resilient infrastructure practices – both

traditional and green. Further, DuPage County’s proposal provides substantial co-benefits to increase social and

economic objectives of the target area consisting of vulnerable populations.

Meet a National Objective

DuPage County certifies that all activities undertaken will meet the CDBG National Objectives of benefitting low-to-

moderate income persons, preventing or eliminating slums or blight, and meeting urgent needs.

Overall Benefit

DuPage County will comply with the 50% aggregate expenditure that meets a benefit to at least 35.83% low-to-

moderate income persons and households, which is the exception criteria threshold for the County.

Establish Tie Back

DuPage County’s proposed commitments in this application tie back directly to the CDBG-NDR Qualified Disaster.

The County’s proposal aims to reduce risk in the areas most affected by the Qualified Disaster.

Benefit-Cost Analysis

Please see Attachment F.

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CDBG-NDR Applicant Certificates

Please see Attachment C.

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Certifications: Please see Attachment C.

Capacity Exhibit C

DUPAGE COUNTY, ILLINOIS

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Introduction

DuPage County has nationally recognized programs, departments and partnerships capable of leading both

innovative policy and infrastructure changes. These agencies possess significant experience managing large federal

grants, executing large-scale projects and coordinating with diverse local stakeholders. The County’s annual budget

is $478.4, and, in fiscal year 2014, the County managed $99.9 in grant funding and $95.5 in capital projects.

During CDBG-NDR Phase 1, DuPage County formed a cross-departmental Resiliency Team, led by the Department

of Stormwater Management (SWM), including the County’s Department of Public Works (PW), Department of

Economic Development and Planning (EDP), Division of Transportation (DuDOT), Community Development

Department (CDD), Division of Environmental Concerns and Office of Homeland Security and Emergency

Management (OHSEM). This team coordinates closely with a larger DuPage County Steering Committee consisting

of the DuPage County Health Department (DHD), Forest Preserve District of DuPage County (FPDDC), DuPage

Housing Authority (DHA), and local municipalities and non-profits, including Choose DuPage, the economic arm of

the County, who are all relevant to understanding vulnerabilities and building resilience. This team was

instrumental in forming the East Branch DuPage River Watershed and Resilience Plan (EBDR Resilience Plan), and

will be the guiding agencies in implementing resilience projects, programs and policies.

General Administrative Capacity

Project Management & Logistics

Over the past three years, DuPage County has coordinated and managed 11 projects. One instance of a scalable,

multi-jurisdictional and multi-disciplinary project is ongoing work along the West Branch DuPage River. SWM and

DuDOT brought together the FPDDC, cities of Warrenville and Naperville, Community Unit School District 200

(CUSD 200) and local business and homeowners to design and construct more than $15.8 million in flood

mitigation, water quality and roadway improvements. Using $5.66 million in bonds and capital funds, the County

was able to leverage an additional $1.37 million from the Illinois Environmental Protection Agency (IEPA), Illinois

Department of Natural Resources (IDNR), FPDDC and CUSD 200. The final phase of this project also utilized $2.8

million in CDBG-DR funds.

Beginning in 2012, the West Branch DuPage River Restoration and Warrenville Road Bridge Replacement projects

include flood mitigation, bridge replacement, roadway realignment, river re-meander, berm creation and river and

wetland restoration spanning the cities of Warrenville and Naperville. In total, the County restored more than 2.9

miles of stream and wetland; protected 37 residential, 3 commercial and 1 school from flooding, expanded the

capacity of the bridge and lengthened the bike path that connects the downtown Warrenville business district to

the north to the McDowell Grove Forest Preserve to the south. Portions of this project won awards from the

Illinois Association of Floodplain and Stormwater Managers (IAFSM) and the American Public Works Association –

Illinois Chapter (APWA-IL). Work will conclude at the end of 2015 with monitoring scheduled through 2017.

From design through construction, DuPage County, the City of Warrenville and FPDDC staffed 7 engineers who

were involved in watershed planning, design and construction, as well as 3 wetland specialists and ecologists. In

addition, an outreach specialist on staff held 5 public meetings, released 5 media advisories, hung 50 door hangers

and secured 5 newspapers articles and ads. In total, the County oversaw 5 contracts throughout the life of the

projects.

Procurement

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DuPage County’s Department of Finance (DOF) assists all County departments in purchasing goods and services in

conformance with Illinois Compiled Statutes, the DuPage County Purchasing Ordinance, related resolutions of the

County Board and administrative policies. In addition, DuPage County has adopted a Procurement Ordinance that

exceeds the requirements set forth in local standards. In 2014, the County engaged in $XX in construction

contracts through a competitive bidding process.

Further, SWM, DuDOT, PW and the County’s Facilities Department recently launched a more restrictive

professional services procurement process to ensure transparency, and align with the County’s objectives of

selecting the lowest, responsive bidder. In partnership with the County’s Finance and IT departments, the

aforementioned departments passed through the DuPage County Board an ordinance for professional services

procurement requiring firms to be pre-qualified either by federal, state or local standards. Since it went in effect in

2014, the County has prequalified 79 firms for categories unique to DuPage County, posted 70 opportunities and

awarded 53 firms with contracts totaling $7.76 million, which demonstrates increased diversity in selections.

Contract Management

DuPage County has the ability to manage complex contracts in-house with highly qualified technical staff. Past

projects like Armstrong Park Flood Control Reservoirs (construction $12.5 million), the Elmhurst Quarry Flood

Control Project (construction $34.6 million) and the Wood Dale – Itasca Reservoir (construction $56.1 million).

Financial Management

The Community Development Department administers the CDBG program, HOME Investment Partnerships

Program grant, Emergency Solutions Grant and Neighborhood Stabilization Program. Currently, Community

Development is administering more than $31.5 million in CDBG-DR funding from the Qualifying Disaster, in

partnership with SWM, PW and local municipalities. DuPage County is timely in its obligation of funds,

expenditures for all grants, project completion and reporting.

Accountability, Quality Control/Quality Assurance, Monitoring, Internal Audit

DuPage County Auditor’s office ensures accurate quality assurance for all expenditures and conducts an audit for

all federal expenditures in excess of $1 million annually. The County Auditor is an independently elected officer

who is responsible for evaluating and reporting on operations and conducts internal audits of the operating

departments, systems and internal controls in County government.

Rapid Program Design & Launch

DuPage County Stormwater Management maintains list of flood-prone properties identified either through

proximity to floodplain or within a watershed plan. County’s Voluntary Flood-Prone Buyout Program currently lists

more than 200 eligible properties for purchase, which poses the County well for quickly implementing the program

and adjusting it in accordance with when and from where funds become available. In the past 25 years, DuPage

County has purchased 101 properties with 38 currently underway. This program is managed and maintained by

professional engineers in cooperation with the County’s zoning staff.

Evaluating Project or Program Outcomes

Technical Capacity

Risk, Impacts & Vulnerability Assessment

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DuPage County and the Partnership have collaborated with research institutions, such as Argonne National

Laboratory, ISWS and the Midwestern Regional Climate Center, have experience collecting and analyzing climate

science data, including modeling and downscaling, and have helped to translate knowledge of possible future

conditions and risks, as well as benefits and outcomes, to the Partnership. Additionally, DuPage County has

engaged higher education institutions, including the College of DuPage (COD) and University of Illinois at Chicago

(UIC), to assist with initiatives to reduce vulnerabilities in response to climate change. [Insert results, skills and

resources]

Management of Project Design

DuPage County has vast experience in managing project design, particularly capital projects. Over the past 5 years,

the County has overseen design for 16 projects. An example similar to the CDBG-NDR project scope and complexity

is the recently completed Klein Creek Flood Mitigation Project, which is designed to hold approximately 300 million

gallons of floodwater in the dual-reservoir, pump system. SWM’s professional engineers oversaw the design of the

project that also boasts sustainable landscaping both in an out of the reservoirs in addition to the engineering

components.

Site, City & Regional Planning

DuPage County and partners have vast experience developing and implementing comprehensive plans. In 2010,

CMAP developed GO TO 2040, the region’s comprehensive plan. CMAP has also conducted land use,

transportation and economic development planning and zoning assistance for over 140 local communities in

northeastern Illinois. Locally, DuPage County’s comprehensive planning efforts have involved significant

stakeholder engagement across multiple sectors, including inter-jurisdictional watershed plans that mitigate for

the effects urbanization on stormwater runoff and the Natural Hazard Mitigation Plan, a multi-hazard plan

addressing floods, tornadoes, earthquakes, and winter and ice storms.

Flood Insurance & Floodplain Management

SWM has the legislative authority to engage in regional watershed planning, floodplain mapping, regulatory

guidance and flood mitigation and water quality projects. DuPage County has watershed plans created for 60% of

the County with staff, including 11 engineers and 7 water quality specialists and ecologists, currently studying

another 9 watersheds. In addition, the Countywide Stormwater Management and Floodplain Ordinance, updated

in 2013 and adopted by 37 municipalities, sets strict best management practices standards of 1.5/1 detention for

new and re-development.

Further, DuPage County is a Cooperating Technical Partner with FEMA for floodplain mapping. The first county in

the State of Illinois to reach this agreement, County staff, including 2 engineers and 2 GIS specialists, works with

the Illinois State Water Survey (ISWS) and Illinois Emergency Management Agency (IEMA) to revise FEMA’s

floodplain maps to ensure accurate representation countywide for flood insurance purposes. FEMA released the

DuPage County preliminary maps in 2015 to a record number of attendees at the public meeting.

Insurance Industry Issues

In total, DuPage County has 4,101 active NFIP policies with 9 municipalities participating in FEMA’s Community

Rating System (CRS) program. On the private side, SWM and PW worked closely with IDNR in the development of

the Urban Flooding Awareness Act, which brought to light the severity of basement backups and the gap left by

private insurers. The study found that the past half century has seen $2.5 billion in flood loss, which is 41% of

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overall disaster loss from all hazards. Yet, NFIP payments have totaled just under $500 million since 1978, leaving a

significant gap between insured and uninsured losses. Working with non-profit partners, such as the Center for

Neighborhood Technology (CNT), the Partnership has begun convening insurance experts to fill in these much-

needed gaps.

Green Infrastructure Planning & Implementation

DuPage County is proud to be leading the way on multiple sustainability fronts and to have been the first county in

the State of Illinois to have won the Governor's Sustainability Award. A component of that success has been both

internal and external countywide green infrastructure planning and implementation. The County recently

completed a campus sustainability plan that identifies green infrastructure opportunities outside of the existing

green roof, rain garden and bioswales on the campus. Further, SWM’s water quality staff offers planning expertise

to communities undergoing green infrastructure planning. Currently, staff is working with the villages of Villa Park

and Downers Grove on both residential and downtown green infrastructure planning and design with some CDBG-

DR funds allocated to implementation of Villa Park’s concepts.

Pre-Development Site Preparation

SWM oversees the DuPage County Countywide Stormwater and Floodplain Ordinance (Ordinance), which

stipulates that best management practices are necessary for development and redevelopment creating more than

2,500 square feet of impervious area. Further, it oversees stormwater permitting, alongside building permitting in

the County’s Building and Zoning Divison.

Leverage/Mixed Financing

Previously stated in Exhibit C (pp.).

Acquisition and Disposition of Real Estate

SWM manages and maintains a Voluntary Flood-Prone Property Buyout Program, which is outlines in previously in

Exhibit C (pp.).

Redevelopment, Rehabilitation & Reconstruction of Structures & Property

Aside from permitting review for post-construction best management practices as stipulated by the Ordinance,

DuPage County does not traditionally engage in redevelopment of property, and, if it was beneficial, would rely on

private partners to carry that task.

Ecological Restoration

DuPage County has an extensive background of multi-disciplinary work both internally and with outside partners.

For instance, DuPage County regularly engages the support of public agencies, such as FPDDC, and local non-

profits to meet broad water quality initiatives that achieve multiple benefits for local communities. An example of

this is the Churchill Woods Dam Modification on the East Branch DuPage River in Glen Ellyn, Illinois. DRSCW

identified this project, which prompted the County and FPDDC to modify the dam and restore surrounding

wetlands on the FPDDC’s property as an alternative to more costly, gray-infrastructure enhancements. This project

helped achieve water quality standards improved aquatic habitat and created more capacity for floodwaters. The

area also became a highly attractive recreational destination in DuPage County and is a topic of science,

technology, engineering and mathematics (STEM) education administered by both SCARCE and the County.

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Accessing Operating & Investment Capital

DuPage County has long-standing experience accessing operating and investment capital as evidenced through the

amount of funds dedicated to capital projects.

Accessing Technical Feasibility & Value Engineering

DuPage County has nearly 20 staff engineers well versed in industry design and construction standards, as well as

federally recognized BCAs for major infrastructure projects.

Community Engagement & Inclusiveness

Regional & Cross-Disciplinary Collaboration

Mentioned in Exhibit A, DuPage County is an integral member of the regional Partnership on resilience. During

Phase 2, the Partnership has convened 10 regional meetings with stakeholders representing 79 organizations,

including 27 non-profit and community based organizations, 24 public sector agencies, 19 businesses, 6 research

institutions and 3 local foundations. In Phase 2, the Partnership met with 40 new organizations on top of the 170

that had been engaged in Phase 1. This serves as a model for similar regional working relationships throughout the

State of Illinois and nationwide. Further, CMAP is convening a regional group of experts to assist in a policy paper

for their upcoming regional plan. The focus is creating more resilient communities able to withstand a plethora of

shocks and stresses.

Community Engagement & Outreach

Leading DuPage County’s community engagement efforts is SWM’s Communications Coordinator. Traditionally,

DuPage County engages stakeholders as part of their watershed planning process. Stakeholders include other

government agencies, natural resources partners, major landholders and residents. For CDBG-NDR Phase 1,

Stormwater Management staff collaborated with CDD to reach vulnerable populations, including low-to-moderate

or fixed-income households, elderly, minority and non-accessible residents. These populations were reached

through extensive outreach of more than 80 non-profit organizations, surveys with nearly 700 respondents and six

direct community meetings. The qualitative data from these meetings helped the County develop its Resiliency

Plan. As such, DuPage County will continue to engage stakeholders in long-term resiliency planning, development

and implementation.

Project Coordination with Key Implementing Stakeholders

DuPage County regularly works with stakeholder groups during the development of watershed plans. After a plan

is finalized, groups are encouraged to become citizen advocates, apply for funding for sustainable projects and

become involved with maintaining the watershed. DuPage County, FPDDC, TCF and other entities are currently in

the process of working with a stakeholder group consisting of nearly 100 members in the County’s Spring Brook #1

Watershed to implement residential green infrastructure projects in conjunction with major restoration work

aimed at revitalizing the watershed and reducing localized flooding.

Consultation & Stakeholder Involvement throughout the Life of a Project

Following the Qualifying Disaster, the County also organized community members to distribute disaster recovery

funding appropriately, including HUD and FEMA allocations. Based on the solicitation of community members, the

County is using CDBG-DR and HMGP funding for local repairs, buyouts and flood mitigation projects, such as the

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Klein Creek Flood Mitigation Project in the Village of Carol Stream. Many of the low-to-moderate income homes

adjacent to this project are split-level properties that have lost livability on the main level due to repeated

flooding. Local residents and elected officials became strong advocates of this project over several years of

permitting setbacks. Combined with $2.8 million from a 2010 County Bond, work is recently completed on a dual-

reservoir system to alleviate flooding in this vulnerable area.

Productive Partnerships & Meeting Management

DuPage County convenes engineers from all municipalities countywide on a monthly basis to serve as a working

group guiding ordinance revisions, policy and best practices. Leading the group are members selected by election,

as well as County staff coordinating productive and beneficial meetings for its members, particularly with

continuing education credits allowed.

Existing Management Structure

A Chairman and 18-member County Board lead the DuPage County government. At the staff level, a Chief of Staff

oversees XX departments, many of which also have their own director. Instrumental in the CDBG-NDR project will

be SWM and CDD using existing staff positions and partners, which are provided in an organizational chart in

Attachment E.

References

DuPage County intends to provide references on similar work constructed in the City of Warrenville and Village of

Carol Stream.

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Need Exhibit D

DUPAGE COUNTY, ILLINOIS

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Unmet Recovery Need and Target Geography

Introduction

On April 17 and 18, 2013, Northeastern Illinois saw widespread rainfall totals of 5.55 inches over a 24-hour period

(O’Hare data). However, the central and eastern portions of DuPage County were hit with more than 7 inches of

rain during that period with the heaviest coming down in a 15-hour window. During the storm, the East Branch

DuPage River topped out at 17.79 feet, which is seven feet above its normal level at Butterfield Road. At Ogden

Avenue in Lisle, St. Joseph Creek, a tributary to the East Branch, hit 14.98 feet, which is 10 feet above its normal

level and four feet above the previous record. Salt Creek in the eastern portion of the County peaked at XX feet, XX

feet above normal. The County contained an estimated nearly 4 billion gallons of floodwater from reaching

communities in the Salt Creek Watershed; however, the East Brach Watershed has minimal flood control

structures. Riverine flooding caused extensive flooding to homes, businesses and public infrastructure throughout

the East Branch Watershed, and the entire County, with 579 NFIP claims submitted to FEMA. The extent of sewer

backups also prompted extensive private insurance claims from properties outside of the floodplain that provoked

an unpresented lawsuit – later dropped – from Farmers Insurance naming nearly 200 northwestern Illinois

communities, including DuPage. The basis for the suit was that these public agencies were aware of the risk, but

did not mitigate for it.

Overall Geography

Communities throughout DuPage County experienced impacts from the Qualifying Disaster with damage to private

homes and businesses, public infrastructure and buildings and environmental degradation. Countywide, FEMA

approved 5,543 individuals for nearly $16 million in individual assistance (IA). Public agencies accounted for an

additional $2.8 in eligible FEMA public assistance (PA). In addition, FEMA paid out $19,797,124 in NFIP claims

resulting from the Qualifying Disaster, which does not include the more than $16 million in private insurance claim

payouts for properties outside of the 100-year floodplain. In the State of Illinois, the past half century has

produced $2.5 billion in flood loss – 41% of overall disaster loss from all hazards – but total NFIP payments since

1978 total just under $500 million leaving a significant gap between insured and uninsured losses. The U.S. Small

Business association paid out more than $10.9 million in disaster loans from the Qualifying Disaster to account for

this gap.

While damages were seen countywide and throughout the region, the extent of damage was not distributed

proportionally. An approximate 68% of payouts and 61.6% of IA claims were from East Branch Watershed

municipalities. In addition, the County mapped the 9,048 damage reports made to municipalities immediately

following the disaster. Combined with PA, IA and NFIP claims, this map reaffirmed that the East Branch Watershed

was the most vulnerable area within the County – and region – because of the Qualifying Disaster. Further, unlike

the Salt Creek Watershed to the east that is home to three major DuPage County flood control facilities, the East

Branch Watershed does not have any major flood control facilities or forecast-modeling systems in place for

protection.

The East Branch Watershed The watershed drains approximately 75 square miles within the central portion of the

County and 7 square miles within Will County to the south. From its headwaters in the Village of Addison, the East

Branch DuPage River flows south approximately 24 miles through residential, commercial and recreational areas.

The East Branch Watershed encompasses portions of Addison, Bloomingdale, Bolingbrook, Carol Stream, Darien,

Downers Grove, Glendale Heights, Glen Ellyn, Lisle, Lombard, Naperville, Oak Brook, Westmont, Wheaton and

Woodridge. Approximately 233,000 DuPage County residents live within the boundaries of the watershed.

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MID-URN (Target Area)

While DuPage County intends to invest in improving the resilience of the East Branch Watershed as a whole, the

breadth of the area did not wholly exhibit vulnerabilities that qualify under CDBG-NDR. To evaluate vulnerability,

the County mapped Census tracts that contain a majority of low- to moderate-income households and overlaid

that with the existing damage report map to identify areas extremely vulnerable to the Qualifying Disaster. The top

three areas identified were within the Villages of Lisle (Census tract 8460.04), Downers Grove (Census tract

8448.02) and Lombard (Census tract 8442.01). To assess the extent of future vulnerability, the County mapped the

100-year floodplain and areas of known repetitive flooding problems, as well as social vulnerability indicators such

as per capita income, age, poverty levels and crowded housing units. The area in Lisle is almost wholly within the

100-year floodplain because of its proximity to the confluence of the East Branch DuPage River and St. Joes Creek.

In addition, the area had the highest overall social vulnerability, according to CDC (Appendix), including ranking in

the 96th

percentile for persons aged 65 or older at 26.4% of the population and the 92nd

percentile for housing

structures with 10 or more units at 41.1%.

Unmet Recovery Needs

Unmet Recovery Needs from the Qualifying Disaster remain countywide. DuPage County has identified more than

223 homes that meet flood-prone criteria and FEMA reported an additional 108 repetitive loss structures in

DuPage County meeting the substantial damage threshold under NFIP. Using $6 of $31.5 million in CDBG-DR and

all $2.8 million in FEMA’s Hazard Mitigation Grant Program (HMGP) funds, the County is purchasing 67 properties

impacted by the Qualifying Disaster. A funding gap of an estimated $67.25 million leaves 269 properties either

unlivable or vulnerable to future flooding events. The County allocated the remaining $25.5 million of the CDBG-

DR funds to shovel-ready projects to protect an estimated 100 residential structures and businesses countywide

(Attachment E). In the East Branch Watershed alone, the Steering Committee members identified a minimum of

$139.9 million (Attachment E) outside of CDBG-DR and HMGP funds in flood mitigation and drainage projects to

improve the watershed’s capacity for future flooding.

The target area, in particular, has 138 properties that remain damaged from the Qualifying Disaster. Of these, 16

meet the 50% substantial damage threshold and must be elevated or purchased; 37 have outstanding repairs at or

above 25% of the property value; and the remainder have various other unmet needs. An additional $14.5 million

to purchase the 53 homes above the 25% damaged threshold and $2.5 million to raise the remaining 85 homes is

necessary beyond the existing CDBG-DR and HMGP funding allocations. Repairing the homes – that are eligible – to

pre-flood conditions has little to no resilience value as both historic weather events and future climate predictions

indicate more extreme rainfall frequencies than those recognized in Bulletin 70, the current standard for design

work in Illinois.

The target area also has damage to permanent public infrastructure (FEMA Category D) that remains unrepaired

due to inadequate resources and for which no CDBG-DR or other funding is available. In the 1960s, the State of

Illinois’ Division of Waterways constructed a berm in the target area to protect an area of 182 homes and 11

businesses up from to a 50-year flood. Since its construction, these properties experienced significant flooding

beyond the berm’s capabilities in 1972, 1987, 1996, twice in 2008 and last in April 2013, which is compounded by

settling and erosion overtime, as well as increased flow of the East Branch DuPage River due to development.

During the Qualifying Disaster, the berm sustained $475,605 in damages, according to engineers’ estimates

(Threshold). Further, a 2012 engineering study estimated it would require $8.5 million to maintain the levee to at

50-year flood protection alone, which catastrophically failed six times in that same period of time (Threshold).

Because maintenance of the berm would only provide a temporary solution for minimal rain events, existing

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CDBG-DR resources were not adequate for the project and instead allocated to other unmet needs throughout the

County.

In addition to substantial housing and infrastructure needs, the target area is in need of economic revitalization.

The Qualifying disaster damaged an estimated XX businesses in Lisle, some still in need of flood-proofing repairs.

Within the target area, a for-profit, long-term nursing home, Snow Valley Nursing and Rehabilitation Center,

sustained several feet of water on its first floor that prompted an emergency evacuation via boat of its 51

residents and 50 to 99 staff members. The facility never reopened following the Qualifying Disaster, and the

property is nearly impossible to redevelop due to its placement within the 100-year floodplain. In 2005, the

facility’s gross revenue was $2,386,007.

Most Impacted and Distressed Characteristics

HUD recognizes DuPage County as most impacted and distressed because of the Qualifying Disaster. County

entities received a total of $100 million in private and federal insurance, grants, assistance and loans for property

repairs, projects and other mitigation activities because of the disaster. Nonetheless, a gap of $67.5 million in

property acquisition for 269 flood-prone and substantially damaged housing exists. Nearly $140 million is

necessary for infrastructure projects within the East Branch Watershed alone.

East Branch Watershed municipalities reported 6,239 – or 69% – of the 9,048 damaged homes and businesses

immediately following the flood. According to CDBG-NDR Phase 1 survey of approximately 700 East Branch

Watershed residents, 64.79% experienced property damage from the Qualifying Disaster and it displaced nearly

20%, including 30% of Lisle respondents, from their home or business. Lisle residents comprised 24.8% of the

countywide damage reports as well.

In particular, low- to moderate-income (LMI) households have greater potential for disruption if homes are

damaged or uninhabitable. In the target area, more than 50% of the homes fall at or above 35.83% LMI

concentration, DuPage County’s LMI threshold under its exception criteria. In addition, the Qualifying Disaster

damaged 20% of homes in Census Tract 8460.04.

Resilience and Revitalization Needs

In DuPage County, an estimated 3,235 structures lie in the 100-year floodplain. In the target area, or MID-URN,

approximately 200 homes and 2 businesses are in the floodplain. The infrastructure protecting these structures is

flawed by today’s standards and completely inept at providing protection against the estimated 20% increase in

precipitation anticipated over the next XX years. The Qualifying Disaster resulted in substantially damaged homes.

If no changes occur, the next disaster could put 53 homes currently at 25% damage over the substantial damage

threshold, and the one after that could affect the remaining 85 homes. The loss in property tax would be

substantial on the Village. Further, an estimated 6.35 acres of commercial property is undevelopable today

because of proximity to the floodplain.

Transportation system disturbances during the Qualifying Disaster also had a disproportionate economic

disruption on East Branch Watershed households. Nearly 48% of survey respondents said road closures during the

Qualifying Disaster affected their ability to get to work with 45% signifying this may have led to lost wages.

Attachment E illustrates the impacts of the Qualifying Disaster on major roads in the target area, which resulted in

delayed response time in providing emergency services, impaired access to homes and businesses; lost economic

activity; and damage to roadway infrastructure.

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Further, power outages regularly contribute to transportation issues at traffic lights, as well as impacts to homes

and businesses. The Qualifying Disaster resulted in thousands of outages throughout the region, some for

extended periods of time. These outages are due to antiquated systems, vulnerable substations, increased

extreme weather and growing populations.

Social Needs

To evaluate the human impact of these damages and disturbances, DuPage County examined the XX emergency

calls countywide that came in between April 17 and 18, 2013. More than XX% of the calls came from the East

Branch Watershed, which represent a particularly burdened subset of the population who needed emergency

evacuation, health attention or had other stresses beyond property damage. In the MID-URN, the Qualifying

Disaster rendered XX homes substantially damaged according to FEMA standards and left another XX homes with

more than 25% damage, leaving them vulnerable to damage that they cannot correct without hitting the

substantial damage threshold. Exasperating social impacts of flooding is the fact that flood-prone homes have

substantial mold problems that can lead to asthma and other respiratory disorders. Further, no foot evacuation

routes exist and water overtopped Illinois Route 53, the major vehicle evacuation route for the MID-URN, during

the Qualifying Disaster, and this route remains in the 100-year floodplain.

Disproportionally affected by disaster are the 26.4% people within the MID-URN aged 65 and older, whom are

often more vulnerable due to factors such as fixed incomes, limited accessibility and social disconnect from

society. During the Qualifying Disaster, emergency personnel had to evacuate via boat the 51-bed Medicaid- and

Medicare-approved Snow Valley Nursing and Rehabilitation Center the MID-URN. In 2007, the nursing home,

unsuccessfully applied to the State of Illinois for a grant to expand the facility to 126 beds with a projected increase

of 16.7% by 2010 for persons aged 65 and older, demonstrating the need for this care in area. Further

exacerbating the need, the nursing home never reopened following the Qualifying Disaster.

Despite the three large forest preserves, countless parks and the nationally recognized Morton Arboretum within

the East Branch Watershed, regional trails and connecting paths are limited. For example, within Lisle, no walking

or bike path connects the mere 1.8 mile span from the Lisle Metra train station to the Morton Arboretum, which

was of concern to several survey respondents. Further, XX% of survey respondents within the East Branch

Watershed signified walking and bike paths were important to them, as well as other environmental amenities,

such as water-related recreational activities.

Environmental Needs

Other environmental needs exist within the Watershed, notably concerning water quality of the East Branch

DuPage River. With the exception of one stretch of the river improved by the Churchill Woods Dam Removal

Project (Exhibit C, pp.), the EPA wholly classified the East Branch DuPage River as impaired. Contributing factors to

this degradation include non-point source pollution, streambank erosion and in-stream sediment. Further, during

the 1960s berm construction in the MID-URN, the State of Illinois straightened and reduced the width of the

channel, causing several ecological implications such as reduced aquatic species and eroded streambank.

An important component contributing to or hindering water quality is the presence of wetlands, which are

disappearing nationally at a rate of [insert information]. The ecological benefits of both large and small wetlands

include… DuPage County recently mapped wetlands countywide and found that only XX% of the East Branch

Watershed is wetland, much of which is found on private property and not properly maintained to maximize its

benefit (source?). While maintaining and restoring those existing wetlands is critical, new wetland creation is also

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necessary. DuPage County and FPDDC have restored nearly XX acres of wetland in the past XX years, but only

created XX acres of new wetland and riparian areas.

Resilience Needs within Recovery Needs

Overview

As expanded upon previously in Exhibit D, the Qualifying Disaster resulted in a minimum of $XX million in

countywide damages based on federal and private insurance claims and other assistance. Further, it damaged 20%

of homes in the MID-URN, 145 of which remain unrepaired. If the Lower East Branch Pilot Project had been

implemented prior to the Qualifying Disaster, no homes in the MID-URN would have incurred damage from

riverine flooding. Attachment F cites the reduction in damages.

Investment Needed

While the Lower East Branch Pilot Project will greatly enhance the resilience of the MID-URN, a much larger

investment is necessary to create a stronger East Branch Watershed. In this Watershed alone, an estimated $140

million is needed for flood control infrastructure projects, $XX million in resilient road and traffic control projects

and $XX million in sewer and wastewater projects over the next 5 years (Attachment E).

Income Characteristics

According to the American Community Survey, the per capita income of residents in the East Branch Watershed is

$30,404. Poverty is an issue in DuPage County with 7.4% of residents living below the poverty line. Within the East

Branch Watershed, wealth is varying with the highest level of poverty in Addison at 14.4% and the lowest in

Naperville at 4.1%. In the East Branch Watershed, 5.6% receive stamps or SNAP benefits. The MID-URN’s per capita

income is $33,524.

Vulnerable Populations

The East Branch Watershed has a high number of seniors at 11%. This correlates to residential tenure, with 94.2%

of those surveyed having owned their own home for over 10 years. Out of the entire East Branch tenure, 73.2% are

owner occupied and 26.8% are renter occupied. DuPage County as a whole has a senior population that grew by

nearly 20% in the last decade, now with well over 100,000 residents age 65 or older.

In the East Branch watershed area, there are 50,015 people living with disabilities, 7.9% of the total population. In

general, unemployment is very low for those with disabilities at 4.3% across the entire East Branch. The highest

overall unemployment is at 11% in Lisle. In MID-Urn, 14.7% have no vehicle available, 21.1% is minority and 26.4%

is aged 65 and older.

The unmet recovery needs detailed earlier in Exhibit D are exasperated by the presence of vulnerable populations.

Limited mobility, fixed and low incomes and disabilities affect one’s ability to recover from shocks and stresses.

Businesses that employ vulnerable populations also tend to experienced lower productivity following a disaster.

Factors Affecting Recovery & Resilience

Throughout the State of Illinois, many local governments are sustained on a maintenance budget that relies

heavily, if not entirely, on grants to support capital projects. DuPage County is no exception. Further, unlike some

other regions – particularly coastal – climate considerations have not been studied or adopted as heavily in the

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Midwest. This creates a disconnect between public, private or non-profit agencies when discussing future

resilience with residents.

Appropriate Approaches

In CDBG-NDR Phase 1, DuPage County acknowledged that an approach not considering the Rockefeller

Foundation’s City Resilience Framework, including infrastructure, economy, leadership and health, would not

benefit the MID-URN or greater East Branch area. In Phase 2, DuPage County has evolved that approach to

consider a combination of projects and programs that include resilient infrastructure, environmental

enhancements, economic revitalization and social benefits.

Regardless of the phrasing of the framework, stakeholder consultation, hydraulic modeling and data gathering

shaped an approach necessary to improve resilience within the MID-URN, as well as future initiatives for the

greater East Branch Watershed. All steps indicated the homes in the floodplain would continue to flood without

some sort of hard infrastructure intervention, combined with environmental improvements to absorb stormwater

and create recreational opportunity. In addition, the area could not move forward as a resilient community

without the redevelopment of safe housing removed from the floodplain, as well as economic development to

foster growth and stability within the community. Further, this formula could be successful throughout the region

and State when attempting to foster communities stronger in the face of increased severe weather.

Prior to entering into the CDBG-NDR Competition, DuPage County sought funding to enhance an existing berm that

offers some degree of protection for residents within the MID-URN. Through Phase 1 of the competition, the

County considered maintenance of this berm as a viable capital project. However, maintaining an under-serving

berm could actually cause more harm than good, particularly when considering the false sense of security it

provides the individuals protected by it. For this reason, the funds would not enhance resilience within the MID-

URN, and, thus, not qualify for CDBG-NDR funds.

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Soundness of Approach Exhibit E

DUPAGE COUNTY, ILLINOIS

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Sound Approach Description

Approach Overview

As touched upon in Exhibit D, DuPage County approached CDBG-NDR Phase 1 by first analyzing a map

demonstrating need in the form of damage reports immediately following the Qualifying Disaster and vulnerability

by LMI. The obvious conclusion was to focus the County’s efforts within the East Branch DuPage River Watershed,

compounded by the fact that it is the least studied of the County’s three main watersheds and houses none of the

major flood control facilities. The Village of Lisle, in particular, showed the greatest amount of unmet recovery

need and vulnerabilities.

To better understand the East Branch Watershed, the County developed the EBDR Resilience Plan, but did not

follow the traditional watershed planning process. Instead, the County engaged local public agencies, non-profits,

businesses, residents and several County departments to contribute to a detailed and holistic plan highlighting

existing needs, recovery gaps and opportunities within the watershed. Further, the EBDR Resilience Plan affirmed

the County’s initial inclination that the River-Dumoulin area of Lisle was the MID-URN, which is not to say it is the

only area in need, just the most urgent.

During the planning process of Phase 1, the County collected responses via an online survey in both English and

Spanish from East Branch Watershed residents and businesses on how the Qualifying Disaster impacted them,

what hazards threaten them most, opinions on their communities and what they would like to see in their

communities in the future. The survey received nearly 700 responses, and, combined with six public meetings, the

County began hearing from residents ideas that would shape the ultimate project approach for CDBG-NDR Phase

2.

DuPage County entered Phase 2 armed with the knowledge that, in the MID-URN, infrastructure improvements

were necessary; floodplain was hindering economic opportunities; homes were in need of intervention; and

residents universally viewed the East Branch DuPage River as a nuisance. The County’s project team, consisting of

staff and engineering and plan consultants, then got to work evaluating alternatives that factored in the urgent

needs of the community, as well as issues identified through Phase 1 consultation.

Throughout the hydraulic modeling process, the project team, in consultation with Lisle staff and elected officials,

toyed with the two project routes dubbed the maintenance or “all in” approaches. After several project revisions,

staff meetings and a design charrette between the County, Lisle and various consultants, the approaches were

presented to community members during a public meeting. Discussion took place among elected officials and

residents, and, although a definite consensus was not agreed upon – nor expected without continued outreach – it

was evident that the community is in favor of an “all in” approach.

Creating More Resilient Communities

Without yet presenting the alternatives, the “all in” approach is clearly the more resilient approach because of its

defining factor; it removes nearly 200 structures from the floodplain that would have otherwise remained

vulnerable to future flood risks.

Defining Metrics and Measuring Success

Further, the “all in” approach allows the use of non-traditional metrics to measure its success in accordance with

the BCA, including resiliency value, environmental value, social value and economic revitalization. DuPage County

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and the Partnership plan to evaluate common metrics across the aforementioned categories to present uniform

results from each of the respective pilot projects.

Proposed Project and Alternatives Evaluated

In the end, the project team presented three alternatives during the most recent public meeting. Alternative 1

represents the maintenance approach, while Alternatives 2 and 3 exemplify the “all in” approach. The latter two

were subject to intensive scrutiny throughout CDBG-NDR Phase 2 as they have similar benefits in the next 10

years, but drastic implications for the community in the long-term. While Alternative 3 is ultimately being

presented for funding consideration under CDBG-NDR, DuPage County and the project team realize additional

outreach will be necessary to continue shaping the community’s long-term strategies.

Alternative 1: The first alternative explored was maintaining the existing 50-year berm. At a relatively high cost of

$12.5 million (threshold), the project would provide very minimal additional protection from the current state of

the berm. If this or nothing was done in the area, it is anticipated that the majority of homes would reach

substantial damage should another flood event occur. In time, buyouts would return the area to primarily open

space, which hydraulic modeling shows actually have little to no impact on flood control. Instead, modeling shows

the open space or flood storage is necessary on the East Branch DuPage River tributary, St. Joseph Creek, to reduce

flooding downstream.

Alternative 2: The second alternative explored and the first “all in” approach involves replacing the existing 50-year

berm with a FEMA-certified levee system on both sides of the East Branch DuPage River that protects to the 100-

year level, plus 3-feet to account for future increases in river elevations or rainfall totals. In addition, the

embankment would be set back on the east side of the river to nearly triple the footprint of the streambank, which

would lower the overall profile of the river and vastly improve its ecology through that stretch. Accounting for

additional compensatory storage to avoid impacts downstream, 140 acre-feet of new wetland and a levee system

adjacent to St. Joseph Creek would be created. This comprehensive approach would remove approximately 200

existing structures from the regulatory floodplain, comprised mostly of homes. However, two large commercial

parcels would also be removed, which opens them up for development and redevelopment. Attachment E includes

a map detailing the project, ancillary benefits such as paths and existing and proposed floodplain under this

alternative.

Alternative 3 (Preferred): The final alternative and preferred “all in” approach mirrors the immediate benefits of

Alternative 2, but approaches them differently. Instead of a complete levee system on the east side of the river,

this project would use a combination of fill and sheet piling to raise the area currently by the 50-year berm out of

the floodplain. Unlike Alternative 2, the majority of the existing structures would not remain under this approach,

which will admittedly be a difficult task even with the County’s existing buyout program (Exhibit C, pp.), but this

also provides the benefits Alternative 2 cannot. First, removing structures from the floodplain opens the area back

up to development and redevelopment, which has the tendency to raise property values. On the surface, this

seems beneficial until the current residents are taken into consideration. They, by their own admission, did not buy

into prime real estate and will likely not remain in this neighborhood as market forces drive them out. Alternative

3 allows the Village of Lisle some degree of control over the development of the new areas, including multi-use

and mixed-income properties that would be very desirable for vulnerable populations. Secondly, while a very

beneficial approach in this circumstance, a levee is not fool-proof and, oftentimes, homeowners assume a false

sense of security when living behind a levee that can make disasters even more catastrophic for unprotected

properties. For these reasons and the multiple benefits of the project, Alternative 3, now dubbed the Lower East

Branch Pilot Project, is DuPage County’s preferred approach to building resilience in the MID-URN.

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Increasing Resilience for Current and Future Risks

The Lower East Branch Pilot Project not only considers historic flooding, but also anticipates future precipitation

trends. This area, in particular, was one remapped by DuPage County for FEMA with the new maps and regulations

slated to go into effect prior to the completion date. The project anticipates this by lowering the overall river

profile and combining several feet of steel to protect beyond the fill elevation. Further, the project includes in-

stream and streambank restoration which is a vital component in flood control projects both now and in the

future. Ancillary benefits to the massive environmental restoration outside of stormwater capacity and increased

restoration opportunities include improvements in air quality, reductions in heat island effects and increased

ecological diversity.

On the transportation side, the project would remove Illinois Route 53 from the floodplain, which is a major

thoroughfare that benefits the entire region. In addition, the creation of trails will reduce the heavy resilience on

vehicles and roads, particularly during severe weather events or other shocks.

Effect on Vulnerable Populations

DuPage County intends to protect and better the lives of vulnerable populations under the project. The County has

a robust flood-prone buyout program in place, and, although involuntary acquisition has not been the preferred

practice, the County does follow the Uniform Act (URA). Further, led by CDD, the County will ensure the project

and any applicable jobs are provided to Section 3 persons to the best extent possible.

Model for Other Communities

The replicability of the Lower East Branch Pilot Project lies within its similarity to a typical suburban area and the

planning process. Throughout the region and state, prior to modern-day ordinances, development occurred at

rapid rates within floodplains and, sometimes, floodways. Compounding this issue, rivers and streams were

channelized and straightened to allow for such development. At the time, proximity to water was an asset;

however, a few large storm events of the past decades have drastically changed the perception of water to a

nuisance. The MID-URN is a prime example of this, and several others can be found within the greater East Branch

Watershed.

The Lower East Branch Pilot Project represents and all hands on deck approach to permanently mitigate for this

unregulated development. From the very early stages of assessing urgent need through design, any community

can use this scalable approach. Further, it involves the concept of “reshuffling” homes, businesses and other

properties to areas that make more sense, while converting what was floodplain development into a useable

community asset – for example, wetlands and trails.

Feasibility & Effectiveness

The design, feasibility and resources required for the Lower East Branch Pilot Project are captured elsewhere in

Exhibit D. As mentioned, the design conforms to industry standards and has been reviewed by professional

engineers and cost experts. A large component of the project involves buyouts, in which DuPage County has vast

experience, detailed further in Exhibit C (pp.), including 49 homes at one time in an unincorporated Glen Ellyn

neighborhood just to the north of the MID-URN.

Multi-Jurisdictional Cooperation

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As mentioned in Exhibit C and E, DuPage County engaged in extensive regional and local outreach across both

phases of CDBG-NDR that contributed significantly to the overall approach. In addition, the Lower East Branch Pilot

Project fits into a larger regional resilience component along with the pilot projects presented by other Partnership

members (Exhibit A).

Moving forward, the Partnership’s multi-jurisdictional approach can be divided into three key efforts:

1. Innovative Resilience Target Communities. Through a series of target communities, the Partnership

will demonstrate the effectiveness of innovative interventions, from on-the-ground projects to new

finance mechanisms. These target areas represent a true cross section of the social, ecological, and

built profiles found in northeastern Illinois communities. Successful interventions will be transferred

to communities across not only the region but the state as well, and over time, will forge a new,

healthy relationship with water.

2. Cross-jurisdictional Coordination. With the goal of scaling up successful interventions to create impact

in communities across the region and state, the Partnership is committed to cross-jurisdictional

coordination. This coordination is meant to improve the level of innovation and quality within each

target community, ensure that impacts are considered across jurisdictions, improve the state of

practice for building resilience, and ultimately develop a template for resilience planning that can be

used across the region, state and country.

3. Regional Resilience Framework for Action. Recognizing that building regional resilience is bigger than

any one entity or community, the Partnership will collaboratively advance efforts at the regional scale

on data and modeling, planning, capacity-building, financial mechanisms, and policy and institutional

changes, among other areas.

BCA

In partnership with the U.S. Army Corps of Engineers (USACE), DuPage County found that the Lower East Branch

Pilot Project benefited the communities at a 5.9:1 ratio over a 50-year span. In addition to the USACE’s traditional

BCA model, each of the project alternatives was evaluated on life cycle costs, resiliency value, environmental

value, social value and economic revitalization. Further, USACE added a 30% contingency to the project costs to

account for unknowns during design, permitting, environmental review and construction process. The full BCA is

available in Attachment F.

Project Scaling and Scoping

The Lower East Branch Pilot Project uses the basics of stormwater management and engineering principals to

remove vulnerable populations from the floodplain, as well as improve economic development opportunities for

an area. This versatile project could expand or contract to fit the budgetary requirements of any urban area. In

addition, the County developed the pilot in a way that could be phased out as follows.

Phase 1 – Fill, wetland creation and conveyance improvements. ($22,987,00)

Phase 2 – Additional fill, additional wetland creation and stream relocation. ($9,909,000)

Phase 3 – Additional fill, additional wetland creation and small berm. ($2,333,000)

Phase 4 – West levee construction. ($6,515,000)

Project and Program Scheduling

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Attachment G contains a detailed project schedule contingent upon the award of CDBG-NDR funds, which includes

a waiver request to extend the spending of funds through 2021. The project schedule anticipates permitting, a

thorough environmental review and procurement prior to construction. The County expects the Lower East Branch

Pilot Project to begin providing benefits via property acquisition in 2018 with full functionality of land realized in

2021.

Budget

Cost Estimate

The approximate base cost estimate for construction and property acquisition for the Lower East Branch Pilot

Project is $43,066,000. Optional features to increase resilience, including steel piling and sheeting and paths, raise

Alternative 1 to $49,967,000. These costs were determined by licensed professional engineers working on

modeling and design for the approaches. A detailed Sources and Uses Statement outlining these costs is included

in Attachment B.

CDBG-NDR would not fund the anticipated annual operation and maintenance costs, but, rather, DuPage County

would absorb the costs in their existing annual budget for operations and maintenance of countywide flood

control facilities.

Cost Analysis

The cost estimate reflects the acquisition, construction and materials cost of removing approximately 200

structures from the floodplain. However, the entirety of the Lower East Branch Pilot Project includes private

development to spur economic activity and provide mixed-income housing in the MID-URN to protect the makeup

of its current population. The private development cost are estimated to be $XX with an expected annual $XX

return on investment.

DuPage County and its team developed the costs for each approach in conformance with accepted design

practices, standards, guidelines and computer software. The County followed the State of Illinois and USACE’s

design guidance. In addition, construction cost estimates from recent projects within the State of similar scope,

construction costs from recent projects in other U.S. localities, vendor quotes and engineering judgement and

experience were used in order to ensure that it is in line with industry standards. Attachment F includes further

details about the cost-effectiveness of the project.

As the project advances to the implementation phase, DuPage County will use a competitive bidding process

(Exhibit C, pp.) to ensure the project will remain cost effective. The County will also report all project activities in

HUD’s Disaster Recovery Grant Reporting System, as with CDBG-DR funds.

Consistency with Other Planning Documents

The proposed is consistent with other adopted planning documents applicable to the MID-URN specifically CMAP’s

GO TO 2040 comprehensive regional plan and DuPage County’s Hazard Mitigation Plan. For more information on

planning coordination, updates and alignment, see Exhibit G.

Regional Sustainability Plan

The Lower East Branch Pilot Project perpetuates CMAP’s GO TO 2040 comprehensive regional plan, which includes

recommendations for livable communities, human capital, efficient government and regional mobility. The Lower

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East Branch Pilot Project perpetuates initiatives within each of the category. CMAP affirmed this in a letter evident

in Attachment A.

FEMA Hazard Mitigation Plan

The Lower East Branch Pilot Project is consistent with DuPage County’s Hazard Mitigation Plan. The 2013 Annual

Report updating the 2012 Plan outlines the natural disaster occurring during April 2013 nothing that most

municipalities in DuPage County had critical infrastructure without power and residents in need of shelter. To

mitigate for such natural disasters, Action Item 11 calls for Structural Flood Control Projects and Action Item 9 calls

for Property Protection Projects, such as property acquisition for repetitive loss properties. OEM affirmed this in a

letter evident in Attachment A.

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Leverage Exhibit F

DUPAGE COUNTY, ILLINOIS

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Leverage

Direct Financial Commitments

DuPage County is in the process of seeking direct financial commitments for its resilience projects from public,

private and non-profits affiliations. To date, Commonwealth Edison has pledged a direct cash commitment of

$245,000 to the Lower East Branch Pilot Project. This financial commitment is in conjunction with a flood-proofing

initiative for the area to ensure power remains in place during extreme weather or other events.

On DuPage County’s end, DuDOT and PW have resilience projects incorporated into the MID-URN. In addition,

SWM will assume responsibility for maintenance and operation of the flood control aspects of the project,

including a levee and pump station. This is estimated to be an annual cost of $9,241.

Attachment B includes supporting documentation of these commitments.

Supporting Commitments

DuPage County has elicited a number of supporting commitments from various partners following the NOFA

through the next 5 years, including:

A partnership agreement between DuPage County and the United States Army Corps of Engineers and

Will County for a planning and feasibility study for the entire DuPage River Watershed – $3 million

A commitment from DuPage County Public Works Department for additional funds to be spent for storm

and sanitary sewer upgrades in the East Branch DuPage River – $8.42 million

A commitment from DuPage County Division of Transportation for additional funds to be spent on

resilient road and traffic control projects – $109.94 million

An annual commitment of 20% match for next 5-years contributing to DuPage County’s Water Quality

Improvement Grants in total of $300,000 annually – $7.5 million

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Long-Term Commitments Exhibit G

DUPAGE COUNTY, ILLINOIS

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Regional Coordination & Long-Term Commitments

During CDBG-NDR Phase 1, DuPage County and the Partnership committed to 12 actions with a completion date of

the end of 2016. Approximately 5 of those actions are substantially completed. The remaining actions – all ancillary

to the Lower East Branch Pilot – have been refocused below.

Lessons Learned

Flood Forecasting

Unlike the two other major watersheds in DuPage County – the West Branch DuPage River and Salt Creek – the

East Branch DuPage River does not have flood forecasting in place for the watershed, which limits the amount of

advanced notice residents and business owners have in protecting themselves from flood events. DuPage County

would like to create a flood forecasting program combined with long-term flood-proofing education for the East

Branch Watershed, specifically to notify landowners within with regulatory floodplain of the potential for riverine

flooding. The County intends to accomplish and fund this through a Flood Forecasting Focus Group by fiscal year

(FY) 2016.

Green Infrastructure Planning

DuPage County has minimal green infrastructure and land use planning countywide. In order to implement

techniques within the East Branch, DuPage County plans to take a bottom-up approach or “crowd source” green

infrastructure to residential areas or downtown corridors. Using existing green infrastructure simulation

technologies, such as those developed by the University of Illinois at Chicago (UIC), DuPage County plans to initiate

a planning pilot to create a comprehensive green infrastructure plan and strategy for Downers Grove’s downtown

corridor by FY 2016. A contract to accomplish green infrastructure planning and design work is already executed.

Legislative Action

Model Codes and Ordinances

Municipalities within DuPage County have varying building codes and zoning ordinances that may impede green

infrastructure, rainwater reuse, native landscaping and other resiliency strategies. A goal of the Partnership is to

model codes and ordinances that municipalities may adopt. DuPage County intends to support up to 3 ordinance

audits per year.

Raising Standards

Community Rating System

DuPage County is not currently a Community Rating System (CRS) community. Currently a total of 10 DuPage

County communities participate with 6 of those communities are in East Branch. DuPage County plans to become a

participant in FEMA’s CRS program for unincorporated areas by FY 2016 and encourage participation countywide

with the goal of increasing communities involves by 10% annually.

Plan Updates or Alignment

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Local Technical Assistance Plans & Projects

In Phase 1, CMAP committed to integrating climate considerations in its Local Technical Assistance projects

through climate vulnerability assessments and recommendations that take into account climate projections in

infrastructure, land use, economic development, conservation, and natural resource management issues. Since

Phase 1, CMAP has initiated three projects that incorporate more advanced analytical techniques and robust

recommendations for stormwater management, capital improvements, and comprehensive planning. These

projects are supported by the MacArthur Foundation and cover 59,380 residents across three municipalities in

Cook County. CMAP has recommended the initiation of five additional projects for the upcoming year that will also

likely include a significant stormwater resilience aspect (pending approval from CMAP’s Board.) The recommended

projects include a stormwater management plan, river corridor study, comprehensive plan, together include over

130,000 residents. CMAP has also applied for $900,000 of funding to pursue additional work on climate

vulnerability assessments through two grant opportunities from the National Oceanic and Atmospheric Agency

(NOAA), both of which are still pending.

Regional comprehensive plan development

CMAP is supporting long-term efforts to build resilience as part of the process to develop a new regional

comprehensive plan for the Chicago region. The planning process, which began in July 2015, will occur over the

next three years and ultimately provide targets and recommendations for the region on land use, transportation,

economic development, environmental, and governance issues. This ongoing effort includes the development of a

regional resilience strategy, which is expected to be a significant issue covered in the regional plan. The regional

resilience strategy largely builds upon the collective efforts of the Northeastern Illinois Resilience Partnership by:

Fostering multi-jurisdictional collaboration by engaging other jurisdictions in the Chicago area that are not

eligible for the NDRC;

Ensuring that the Partnership’s long-term ideas can be achieved beyond the time-frame of the HUD grant;

and

Incorporating our shared resilience vision and innovative resilience strategies into a formal, region-wide

plan that covers a comprehensive set of planning issues for communities, economies, infrastructure

systems, and ecosystems.

The cross-sector relationships initiated through the NDRC informed CMAP’s approach to establish a resource group

to guide the regional resilience strategy. The resource group includes representatives from all four NDRC

applicants, as well as diverse experts from public health, philanthropy, emergency management, transportation,

stormwater, utility companies, land management, and environmental justice community-based organizations. This

stakeholder engagement will be paired with robust public and resident engagement in later planning stages.

Ultimately, the regional comprehensive plan will provide a framework for CMAP and its partners (including

members of the Northeastern Illinois Resilience Partnership) to implement resilience policies and programs in a

concerted, strategic manner.

Hazard Mitigation Plan Update

Prior to the NOFA, DuPage County’s Hazard Mitigation Plan did not include climate considerations and were not

related to local land use plans and regulation, which may result in missed funding opportunities during post-

disaster redevelopment. DuPage County intends to incorporate climate considerations, local land use plans and

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regulation incrementally in annual updates and fully update under current FEMA cycle, which is in 2017 for DuPage

County.

Financing & Economic Issues

Stormwater Management Funding

SWM operates in a maintenance budget with 2010 bond payments required to 2017; so, internally, funding is not

readily available for addressing issues within populations vulnerable to floods, especially those identified with

unmet needs from April 2013. The County intends to research resilient and dedicated stream of funding – from

both public and private sources – to address unmet needs in the East Branch DuPage River Watershed from the

April 2013 flood, especially hard hit areas. To date, a financial analysis of the program has been completed and is

waiting for review by the DuPage County Board. In addition, in 2013, legislation by the Illinois State Legislature was

passed authorizing DuPage County to explore alternative funding methods, such as a stormwater fee. Education

will occur through FY 2016.