ROOD CONTROL

Evening Post, Volume CX, Issue 110, 5 November 1925, Page 16

ROOD CONTROL

COMPREHENSIVE SCHEMES

PRINCIPLES GOVERNING THEIR

ADOPTION

A EIVEE EXPERT'S NOTES.

The general principle! that ahould govern the consideration and adoption of any scheme for the comprehensive control o£ flood* in rivere kre sucointly set forth, in some ob. servations :of Mr. F. C. Hay, C.E., engineer to the Manwatu-Oroua River Board, and one of the leading experts in the Dominion on the aubjeot of river control. Mr. Hay was a member; of theßoyal Gommißsiou appointed'in" 1919 to 'examine the cases of certain New Zealand river*, which had caused trouble by flooding, including the Taieri .and the; Wairau, among others,-which' have been notorious for their floods in re-' cent'years. '•.'■' The term "comprehensive" is, says Mr. Hay,-here used to denote projects of river flood control which ate designed to give all floodable lands in a district complete immunity from floods, to that these lands—by being protected' er reclaimed may be rendered fit for cafe and profitable occupation; and in •which.the design is such that the work* will not increase the flood menace elsewhere'or to other interests, nor disturb conditions created by existing settlement. Ihe fulfilment of these requirements may necessitate' the addition, to the project ot substantial works over and above the actual works needed only to control floods, and jt is quite possible, that the design and' cost of the scheme may be further influenced by the desirability of improving the river for navigation, irrigation, water power, or any other pm> poso for which it can be used. WHO ARE THE BENEFICIARIES? The beneficiaries may be grouped-into three classes, namely,— (1) The owners of land protected'or reclaimed—represented by the River Board —who receive direct benefit. ■ . •■ (2) The residents of the district within which these lands are situated—represented by the various local bodies controlling the affairs of the district— •who receive indirect benefit. ■ ,_ (3) The State—represented ■ by. the General Government—when there is a national interest in the scheme. The benefits to each class are— (1) To the Lands.—The. value of the scheme is measured by the increment, to the value of the lands, estimated: to result from the carrying but of the project, and the direct .benefit to the landowners is the amount by which the increased earnings from the land will exceed the taxation required'to pay lor the scheme. : \ . • ... (2) To the District.—The value of the scheme is measured by the value of such public works included m the project which are of use to the district, but which are not required for purposes of flood control; by the improvement and protection afforded to existing public works owned by the district; by the improvements and stabilisation of lines ci"communication; by the stimulus to business due to the iuereaaed productivity of tlio lands: protected ot; l-ra-claimed and tlio increased i population supported thereby; t>y' too. •ympathetie rise in property values in the towr.s and lands adjacent U> the flooded arM; and, generally, by the fact tt»f .the district may progress and be developed t<i the highest extent, unhindered .by/the menace of floods. M 3) To the State.—The value. : of in« scheme to the State is meyurpd by th» protection afforded Government property—by the increase Depopulation and revenue—by improvement in tratttportation, and by the removal fron tht State of an ever-increaetng fiaajM'jai liability for repairing damages eaueed by floods. .••■■■ T+IE LIMITING COST . The limiiting of costs of proieeU for rivor control is determined by the'benefits accruing:— . ..' ' ; (1) To the Lands.—A competent Boar* of Assessors can estimate cloaely the<i»c'rease between the unimproved value of the lands under the existing condition* and the unimproved value that *ill obtain at -the date of completion of tb* scheme. The increase so found for eaoi property, totalled over all the lands ,i«i the Jiiver Board area, repraents .the betterment, -and the maximum oonttibtibution that the lands can afford, to mik«

COMPREHENSIVE SCHEMES.

towards the cost of the scheme is 5-14tha of the total betterment so arrived at.

:. (2) To the Distn'ct.—lt is possible to estimate within certain limits the monetary value of the scheme to each local body' exercising control within the district, 'and from such estimates to assess to each local body the amount it should pay - towards '• the ' cost ;of the ' scheme. The sum of the amounts so assessed to each local aody is the maximum contribution towards the cost of the scheme that the district can afford to make. (3) To the State.—The national interest in the scheme can be valued by a body having the necessary powers of investigation, and from such valuation a proportionate amount fixed which represents the maximum contribution that the State can profitably make towards the cost of the scheme. Tha sum of the maximum contribution for direct benefit to the lands, for indirect benefit to the district, and for the national interest in the scheme represents the limiting cost of the scheme. WHEN A PROPOSITION IS SOUND A thorough engineering investigation is required to decide on the scheme which will most economically fulfil the functions of comprehensive flood control, having regard to all matters included in the definition. The cost of the scheme should be estimated in detail, and included in the estimates must be f.ll amounts required to be paid for land, compensation for ■ severance, loss cf riparian rights, etc., and all other 'charges necessary to vest the channels in the controlling authority. If the estimated cost of the scheme so found does not exceed, the limiting cost as previously arrived at, the project .s, so far as the estimates are reliable, a sound business proposition. The cost, of the scheme should Ie .borne by the- beneficiaries in the ratios of their maximum contributions; Eaoh beneficiary . should pay towards .'he scheme a proportion of the. cost represented by the ratio of its maximum contribution to the limiting cost. Taxation for capital charges should be assessed on betterment. " ; (1) On the, lands: The taxation of the lands receiving'direct benefit within Hie River Board area' should be for- each property in strict and constant relation to the betterment. " This .is the only fair way to rate the lands.. By. this, method-the payment of -rates is -an investment in which every .ratepayer, has, equal opportunity ofmiiki'.;* the , same percentage of profit, and the opportunities for "private speculation, and profiteering in the .sale'of reclaimed lands are reduced to a minimum. If the cost of thp scheme chargeable, to the : -lands were', equal to tlic maximum contribution economically possible (see above), then the annual rate would be very nearly 6d per £1 of betterment, and this ;s the limit of. taxation., for capital cost'of tha scheme. If rating on tiiis principle were adopted it would be-better to hear the appeals against the betterment, iiS the rating is automatic on' the betterment and it is the betterment'schedules therefore that concern the ratepayers and which need their criticism. The loan proposals. should lie .submitted to ths ratepayers'in'the usual way. . (2) Over the district: Each local body having Had its share of the capital cost nssessed,.it would lie "advisable that the loan be'raised'by special'order' without taking the ennrent of the ratepayers (sea Local Hodies Loans Act, 1913, 16, rl). It must bo recognised that the indirect benefit resulting, from the carrying out of the scheme, though it. may bs a c'ol>' siderable sum, spiead over the whole community -. rcpreEeiVU-d • by/ the local body in question is nut sufficiently..gceul ■ or ohvious to. the individual • ratepayer to make it likely that a loan'poll would be carried -The special rate;-would, however, be a very small one, and provided the tinnhcial groundwork on .which the cost chargeable to the local bndy has been properly done, the community as a ' whole is making an investment which will return as big a percentage of profit as may be expected by the individual ratepayers owning the . lands directly benefited. Rating should be in the manner provided by existing legislation. TAXATION FOR MAINTENANCE The maintenance of the-works of a comprehensive flood,''control scheme is of. very great importance and becomes increasingly "important as" time goes.on and settlement-increases The annual; Charges for maintenance should be apportioned b'etweeu the three groups." of beneficiaries by" a competent tribunal and-there .'is Yio reason to 3upppsc .that-this ratio -haying onco boon ..satisfactorily 'fixed;' there .would ever be any necessity foe altering it. (l)-Land.r—Maintenance rates on lands in group (1) should be on a different priuiiple • f rom that, on which Kiting for. capital charges .is,based. While' the' rating for the: construction of the 1 scheme is an investment of money, maintenance rates are not only for tho purpose of protecting that investment,;but arc for tho protection, of all other investments that rest on tho lands' originally subject to flooding. .Maintenance is a-per-petual insurance against flood risks and the rate should bo in relation to' the amount of the risk. ' To assess the amount of the'risk on any holding, two factors have to be considered, namely, the capital value ..and tho position relative to the river. The application of this principle "leads to the coiclusion that rating for maintenance r-n tho lands in question should be. on a graduated scale and on the capital- value. Insurance; Bates a comprehensive flood control scheme has been defined as one giving complete immunity from "flooding, it is safe' to assume that the flood ris>k cannot be entirely eliminated, breaching of the works is possible from faulty construction, bad maintenance, or the occur•'rence of. a flood of . unprecedented magnitude. - ... The conditions that obtain when the scheme has been carried out are i ideal for the application of tho insur- I ance principle, to cover for the individual: any flood risk not eliminated by the works. It is suggested here that tho creation of a flood damage lelief iund by the levying'of an annual rate on the lands in class (1-) equal to 10 per cent, of the maintenance rate is a necessity for guaranteeing the financial security of the lands included in class lof the beneficiaries under the scheme. District.—The rates for the.maintenance charge apportioned to any local body should be levied over, the same area that tho special rate is struck-over and should lie.levied in .-the manner." provided by existing k'---isSation.. ..... . INTEREST AND RESPONSIBILITY OF BENEFICIARIES , Tfco attitude-of the Biver-Hoard' towards- a comprehensive flood control scheme to be financed'by its ovru.

ratepayers only, should bo, and iuvuriably is, critical. Such a proposal is not a sound business one, and oven I if it were, there is no justification for the farmers in the river board area, being the sole contributors, to , a scheme whoso effects extend over a much larger community and which benefits other interests. It is posi- , live that the best investment of local i I public money .in flood protection— | that is the one bringing in the greatest returns on the money expended — is on minor works. The ratio of value received to expenditure is loss and less as the works increase- in magnitude because for greater protection the rate of increase ot cost of works rises whilo the^ late of increase of land values falls. Tho limit of protection of tho lands by the lands is reached when further taxation costs more than flood, damage—the risk of floods is then preferable to tho certainty ot excessive taxation. Tho responsibility of- tho River Board, acting alone, should bo to got as uniform and high a degree of protection as is economically possible by works which aro on the lines, ot the best coinprchensivo scheme so that should the latter bo. ultimately carried out, the existing works will be incorporated and tho . wastage of money consequent on the building on putch work protection thus ■ obviated. Jiegardhig the attitude of tho rate payers themselves to a comprehensive scheme in which all beneficiaries contribute their proper share, which comes within the limiting cost_, and ■for which the taxation is equitable, it may be said that everything depends on how thoroughly the various elements of the scheme arc explaincl to them. • ; . ' (2) Distrist. —The district responsi ' bility in the! matter of comprehensive flood control depends on the extent tho progress of the district will be affected by the scheme and the advocacy of the scheme by any local-body on'whether tho proportionate cost assessed to that'body is in suitable ratio to the expected.benefit. ■ ; ATTITUDE OF STATE (3) The State.:—Tho attitude of. the f;ta.te towards any comprehensive flood control scheme would no doubt be known as the result of an investiga; tio'n into the national interest in the undertaking, and a comparison of.the nm6untof such interest with'tho proportionate cost of the, scheme to the State. ■ There is-evidence that tho Statt recognises a national interest.in. comprehensive flood control by the fact thai-it is subsidising, two such .projects at'the. present- time, "namely,, 'i'sueri and Waihou:Ohincmuri. In.tho lirst casts the State contribution is £85,000 and tho lands £65,000 . tov,iirds a £150,000. scheme. In the second caso .the State is financing works estimated to cost £600,000, but .on . completion . it is expected that tin lands will'be rated to provide £150,000.' In both.cases there is a measure of responsibility imposed on the State in that flood damages In, the lands have been aggravated by gold mining operations higher up in tho drainage areas of the rivers. Such a responsibility might also be recognised in the case of lauds where th' 3 flood risks have, been increased by the operations, of settlement on the higher country;. '■ ■ ." The risks attendant on settlementpermitted to take place in areas partially protected and the possibilities of future calamities involving loss of life aro matters of Stato concern, whilo the wastage of capital involve;! in; the construction of ineffective works and in ever recurring flood damage both to private and public interests, whie-l goes on until-ulti-mately a State-aided . comprehensive scheme is carried -out; is a strong economic reason for the'more . efficient i/arming and execution of remedial measures. Without contradiction ol: the/statements made as to the economics of minor works it is a fact that for a river whero flood control must 'eventually.- be earned out on a comprehensive scale the minimum expen : Oituro is required when the work is undertaken in tho. first instance, on that-scale. It .is. probable-that in a period .sufficiently, long the financial lesults of such an operation would be very much better than the financial results" obtainable; by any. other' method. There are, however,-'-'sufficient reasons why such a policy-'cannot be undertaken in virgin country, but as settlement increases, the time' comes when partial protection is not sufficient, complete flood control is imperative, and the State's responsibility may be said to begin. ' NEED FOR LEGISLATION That comprehensive flood control projects may bo- carried out in a practical way it is suggested that v new legislation is,required providing for the construction and maintenance of Writs to control the flood waters of ■main rivers and .embodying the. prin- , ciples set out hercbeforc. It is sug {jested.that an Act.setting up a Mail. Rivers Board and similar in many re spects, to. the Main Highways- Act wo(ld meet the case, while existing legislation .relating to ordinary River i-Juards should be consolidated into ono Act, applicable to all. . Even if the Main Rivers Act did not contain financial provisions whereby State aid would be forthcoming, it aliouM at least be effective enough to pave the way for special Acts authorising .such aid and enabling in every casu when tho local district and State interests warranted it, tho carrying ouf. and maintenance of comprehensive flood" control schemes.

A visit to Plimmcrton is always a source of pleasure and delight to both young and old. There seems to bo something fascinating about Plimmorton and its beach, and it must causo groat wonderment to visitors from overseas to learn of tho excellent type of accommodation house already provided at New Zealand's leading health and holiday resorts. "Steyno' House," which is shown in tho general pieeuro of Plimmerton given above, is one of the most striking examples o£ the better-class accommodation made available to tho public. - It is really doubtful if thcro is anything better in tho Old World, where such places have all the advantages of greater population, and are longer established. , ■

Mosdames Sutherland & Brady, the proprietresses of "Stoyno House,'' aro to bo congratulated on the excellent manner iv which this private hotel is conducted, and there is every indication that there is going to be a bLg rush of visitors during the present ueason; therefore it behoves air who desire to indulge iv a term at tho bench to get in early to avoid the rush. "Steyne House" is beautifully furnished. It contains upwards of one hundred rooms, and in lit throughout with electric light. Patrons will fiud every home comfort and attention, and just let tho writer add that the cuisine is Al at Lloyds'. The house is only two minutes from tho best part of the beach, and handy to post office and the new-bowling greens, tennis and croquet lawns and cricket pitch. Come to Pliinmerton, stay at "Steyne House," and enjoy yourself while you rost.

Designed by L. G. West and Son, Architects, and toeing erected Uy Messrs. Trevor Bros., Ltd., the well-known Buildins Contractors.

men completed there will bo accommodation 011 the premises for five married' and twelve single men. It will be fully equipped with thrco motors, two of which arc pumping engiucs. Tho wholo town will bo. reticulated with tho latest street fire alarms, connected to a Duplex fire alarm system. Iho section on which the new building is-located contains one acre, which is considered sufficient for a central station for all time. The brigade consists at present of two officers (Superintendent Win. Barnard and Deputy P. A. Milverton) and three permanent men, with an auxiliary staff of twelve, ahe foui -ation stono was laid on 10th September by the Deputy Mayor (A. J. Graham), who is also chairman of tho Fire Board. The work willl be completed early in the now year. . ,

ThV;?J2K9.w veh.iel^^.yyas built by -Messrs. G-. P.- Adler and. .Co., motor body experts* of Main street, Palmerston Northland is- constructed on an International bus chassis supplied by the Harvester Company. Tho body is finished off in. tXlilliant carmine, and possesses many new features on the previous vehicles supplied to the Council. The bus is capable of seating twenty persons, and Js provided ■with a safety door at the rear, which can be opened instanMy by the re'n'o'val or tipping of one seat. The ventilation and interior arrangements generally, are really .excellent./,,1t. is .handsomely paneled, ..the.,seats being upholstered in leather, while there is a rail running the complete length of the body vn placo of the old-tiinq strap hanger. It weighs 2 ton, 16 ewt, and the frame of tho chassis is very strongly built, and it is underslung, which means it is not necessary to have the body up off the ground. .This fact, together with the auxiliary springs, keeps the centre of gravity nice and low, and avoids the* nasty sside swing when rounding corners, besides making the bus. com!"OTtafelp to ride in. • . The Council, TColl satisfied, and..'the Traffic Manager states that the passengers are delighted with tho comfortable side, which is undoubtedly due to the spri.ijgiii'g arrangement on this machine and the model design of the body. The International Harvester Company make six different models, with.a wheel base of 15>0in., like the above model, to those of 250 in.. wheel base, and a big feature of iVhe introduction of this bus to the municipal service is that the authorities can. standardise- in one. line, and obtain spare parts from the manufacturers on the spot—two of the main reasons for the Council purchasing an International. The outward appearance of the vehicle is enhanced by its straight even lines, and the whole job is a distinct credit to Messrs. G-. P. Adler and Co., the body builders, and the company manufacturing and supplying the chassis. • .: ■: ' .

I beg to return my sincere thanks to the electors of Palmers ton for again showing their unmistakable confidence in me by re-electing •me with such a handsome majority at yesterday 's poll. Yours faithfully, J. A. NASH. Palmerston North, sth November, 1925.