TO: Mayor and City Council
THROUGH: Krishna Namburi, Interim City Manager
FROM: Brian D. Martin, PE, Public Works Director
SUBJECT:
title
Emergency Declaration relating to the upcoming deep drawdown of Detroit Reservoir.
Ward(s): All Wards
Councilor(s): All Councilors
Neighborhood(s): All Neighborhoods
Result Area(s): Safe, Reliable and Efficient Infrastructure
end
SUMMARY:
summary
On December 26, 2024, the National Marine Fisheries Service (NMFS) issued a Biological Opinion (BiOp) requiring the U.S. Army Corps of Engineers (Corps) to conduct deep drawdown operations at Detroit Reservoir to improve downstream fish passage. Elevated turbidity levels expected in the North Santiam River resulting from the deep drawdown present a severe threat to the operation of slow sand filters at the Geren Island Water Treatment Plant (GIWTP), which are the primary method for treating Salem’s drinking water supply. Deep drawdown operations are currently planned to begin in the fall of 2026. An emergency declaration is necessary in order to procure necessary materials, equipment and services to develop alternative water sources and build resiliency due to the system limitations imposed by the deep drawdown.
end
ISSUE:
Shall City Council adopt Resolution No. 2025-18 declaring an emergency related to the Detroit Reservoir deep drawdown?
RECOMMENDATION:
recommendation
Adopt Resolution No. 2025-18 declaring an emergency related to the Detroit Reservoir deep drawdown.
body
FACTS AND FINDINGS:
On December 26, 2024, NMFS issued a BiOp regarding the continued operations of the Willamette Valley System of dams and reservoirs to the Corps for the continued protection of Endangered Species Act listed fish species. One of the requirements of the BiOp is for the Corps to conduct a deep drawdown of Detroit Lake to aid in the downstream passage of fish during the fall outmigration period. Although the BiOp mandated a fall 2025 commencement of the drawdown, the Corps has postponed this action until fall 2026 to study the impacts of the action.
There is little question that the deep drawdown will elevate turbidity levels in the North Santiam River. When slow sand filters are exposed to above-normal turbidity revels, the operating lifespan of the sand in the filters can be severely shortened. At very high levels, the filters can be “blinded” by fine sediment and quickly become inoperable. Historically, prolonged high turbidity requires the City to cease withdrawing water from the river and rely on storage in our reservoirs, several groundwater wells, the aquifer storage and recovery system, and an intertie with the City of Keizer. We estimate that these alternative water sources can marginally meet the projected water demand during the timeframe of the proposed drawdown. However, under this mode of operation there is no redundancy in the system. Should a critical component of one or more of these alternative sources fail, our ability to supply water will fall below the system demand. Even a short time in this situation could result in insufficient water storage within the system for firefighting and our customers would be faced with untenable and unsustainable risks to life, property, and livelihood.
Public Works is undertaking several initiatives to prepare for the likelihood of diminished surface water supply during the drawdown period. This includes a project to develop additional groundwater wells at GIWTP with the goal of having the two to four new wells operational by fall 2026 to reduce the need to rely on surface water to operate the slow sand filters during high river turbidity. Public Works is also developing a program to expedite re-sanding the slow sand filters to increase resiliency in anticipation of the elevated turbidity levels. In addition, Public Works is initiating a project to add a pump station to a second water intertie with the City of Keizer. Under standard procurement processes along with anticipated lead times for well drilling and specialized pumps and equipment, the projects would not be complete and operational until March or April 2027, well past the anticipated need period of November to December 2026. This timeline presents an unacceptable risk to Salem water users. Under an expedited procurement schedule, the project can be completed by August 2026.
SRC 2.670 authorizes the City Manager to submit a request to City Council to declare an emergency when a state of emergency is threatened to occur within the City. Resolution No. 2025-18 (Attachment 1) provides the nature of the emergency, the geographic area affected, threatened emergency conditions, potential damage, and the actions to be initiated to alleviate the situation. Public Works staff will follow the requirements of City of Salem Public Contracting Rules 4.2 related to emergency procurements, which apply when an unforeseen condition exists presenting substantial risks of loss, damage or service interruption, or substantial threats to property, health, welfare, or safety.
The total estimated cost to prepare for the initial deep drawdown is approximately $8,000,000. The procurement of contracts for consultants/contractors is anticipated as follows:
Carollo Engineers: Staff intend to use an existing consultant of record contract with Carollo for General Civil Engineering Services. This contract was competitively procured in Fiscal Year 2021 and renewed annually since. Carollo is the best fit for this assignment given their prior experience providing design services at Geren Island to treat cyanotoxins, implement ozone treatment, develop alternate groundwater sources, and rebuilding an existing slow-sand filter onsite. The estimated cost for engineering is approximately $1,000,000.
Summit Water Resources: Specific expertise related to ground water investigation and geohydrology is necessary to support the design and installation of the new wells. Staff intend to use an existing consultant of record contract with Summit Water Resources for Surface Water and Groundwater Investigation Services for this purpose. This contract was competitively procured in Fiscal Year 2025 with an annual extension completed since. Summit is the best fit for this assignment due to their knowledge of hydrogeology in the area including assistance with recent design and installation of the new southeast collector well at Geren Island. The estimated cost for this work is approximately $350,000.
Emery and Sons Construction: General contractor support will be required to support groundwater well drilling, install ancillary piping and equipment, and perform the re-sanding construction of the slow sand filters. The exact scope of the work will depend on the results of the drilling and will be difficult to define to the necessary level of detail for successful bidding. For this reason, staff intend to use an existing contractor of record contract with Emery and Sons Construction that was competitively procured in Fiscal Year 2024 with annual renewals since. This work will require a contract amendment to increase the contract limit. Emery has extensive experience supporting operations at Geren Island, which has included the re-sanding of Filter 1 East in October 2019 and assisting the City with emergency response including the recent sanitary sewer force main repairs in December 2024. Emery can also provide valuable input regarding schedule, sequencing, and constructability during design of the new wells and supporting infrastructure. The estimated cost for this work is approximately $3,750,000.
Well Driller (to be determined): Construction of large-diameter production wells is specialized work with only a few contractors capable of performing to the necessary specifications. This results in limited driller availability and long lead times for a contractor to mobilize to the site. The project team has determined the scope of drilling services necessary, and staff has developed specifications to obtain quotes from qualified contractors that can meet the required schedule. These specifications include the construction of two new groundwater wells with the ability to add an additional two wells if water production is favorable to the additional construction. The estimated cost for this work is approximately $750,000.
Pump Supplier (to be determined): The specific pumps and supporting equipment necessary for the new wells and the Keizer intertie cannot be determined until pump testing of an existing nearby well is completed and the amount of groundwater yield can be more closely estimated. There are also several months of lead time required for this type of equipment, which does not leave enough time for a typical bid process. Staff will obtain quotes from as many suppliers as possible who can meet the required specifications and schedule. The estimated cost for this equipment is $600,000.
Finish Filter Sand Supplier (to be determined): The specific sand necessary for slow sand filtration is a highly specialized sand of a specific gradation and quality that meets National Science Foundation certification for drinking water production. The project team is developing specifications for a goods agreement to competitively procure additional finish filter sand to re-sand two slow sand filters. The estimated cost for sand supply is $2,000,000.
BACKGROUND:
SRC chapter 2 establishes the City’s emergency management agency and provides for the declaration of a state of emergency consistent with Oregon law.
Allen Dannen, PE
City Engineer
Attachments:
1. Resolution No. 2025-18