Dams

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 EXECUTIVE SUMMARY
There are over 91,000 dams1 in the country that serve many purposes.
Dams are classified by hazard potential. A high-potential hazard-potential
rating does not imply that a dam has an increased risk for failure; it simply
means that if failure were to occur, the resulting consequences would likely
be a direct loss of human life and extensive property damage. Over the last
20 years, the number of high-hazard-potential dams has more than doubled
as development steadily encroaches on once rural dams and reservoirs.2
Although the number of high-hazard-potential dams has increased, the
overall percentage of these dams protected by an Emergency Action Plan
has increased as well. As of 2018, 81% of such dams had a plan on file, up 5%
from 2015. Unfortunately, due to the lack of investment, the Association of
State Dam Safety Officials estimates the number of deficient high-hazard-
potential dams now exceeds 2,300.3 Meanwhile, approximately 3% of dams
supply households and businesses with hydroelectric power, and many of
these dams are privately owned by utilities and follow a rigorous operations
and maintenance schedule.4

CONDITION & CAPACITY

Dams are present in all 50 states, serving a wide significant hazard-potential, meaning a failure would likely
range of daily needs, such as water storage, irrigation, cause significant economic damage, but not necessarily
hydropower, mining, flood control, and recreation. The loss of life, reduced during this period from 11,882 in 2017
public most commonly thinks of engineering marvels to 11,343 dams7 in 2019.
like the Hoover Dam in Nevada, which provides water
Another contributing factor to the shift in classification of
supply and hydroelectric power to Arizona, Nevada, and
dams is increases in state funding for dam safety programs.
California. However, only 3% of dams are currently a
With state dam safety programs better able to assess these
source of hydroelectric energy.
structures, the opportunity for owners to become aware
Dams are classified by regulatory agencies based on their of rehabilitation, repair, or removal needs increases, as
hazard potential or anticipated downstream consequences does the likelihood of dams being classified as high hazard
in the event of failure. The failure of a dam that is classified potential. Signs of improved funding began as early as
as high-hazard-potential is anticipated to cause a loss of 2015 as state economies began to recover from the 2008
life. As of 2019, there are approximately 15,600 dams5 recession.8 Approximately 69% of dams in the National
in the United States that are classified as high-hazard Inventory of Dams (NID) maintained by the U.S. Army
structures. Over the last 20 years, the number of Corps of Engineers are state-regulated dams.9
high-hazard-potential dams has more than doubled as
Recent crises following heavy seasonal rains, like the failure
development steadily encroaches on once rural dams and
of the Oroville Dam spillway in 2017 or the failure of the
reservoirs.6 Meanwhile the number of dams classified as

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Edenville and Sanford dams in Michigan, have made major time of their construction, they may have been considered
headlines, highlighting the poor condition of many of the low hazard potential, so they may not be able to withstand
nation’s dams. Thankfully, incidents of large-scale flooding the increasingly frequent and severe weather events or oth-
such as these are rare. Proper maintenance, routine er natural hazards like earthquakes.
inspection, necessary upgrades, and implementation of
A secondary classification applied to any dam refers to its
an Emergency Action Plan can ensure optimal conditions,
condition rating based on structural safety. In the National
which in turn protect the public health, safety, and welfare.
Inventory of Dams (NID), dams can range from “not rat-
The average age of our nation’s dams is 57 years. By 2030, ed,” which refers to either the lack of inspection or lack of
seven out of 10 dams in the United States will be over 50 rating, to “satisfactory,” indicating no existing or potential
years old. While this is not a reflection on hazard potential, dam safety deficiencies. States and federal agencies may
the high average age means that the majority of dams will have additional definitions and rating applications that are
not have been built to current standards, let alone incor- used to classify dams. Definitions may vary slightly from
porate newer standards that improve their resilience and state to state as well as among federal agencies.
reduce the risk to downstream areas. Furthermore, at the

FUNDING & FUTURE NEED

Without specific funding programs, many dam owners In fact, the most recent Association of State Dam Safety
cite lack of funding as the reason maintenance and Officials’ (ASDSO) cost estimate indicates the combined
upgrades are deferred. As of 2019, over half (56.4%) of total to rehabilitate the nation’s non-federal dams
U.S. dams were privately owned.10 The remaining dams exceeds $66 billion.12 To rehabilitate just those high-
are divided among a variety of owners; among them, hazard-potential dams would cost nearly $20 billion.13
20% are local, 4.7% are federal, while an almost equal Additional estimates show the need to rehabilitate
figure, 4.8%, are owned by states. It should be noted federal dams is approximately $27.6 billion.14
that 42% of federal dams11 fall under the purview of the
The High Hazard Potential Dam Rehabilitation
U.S. Army Corps of Engineers (USACE) or the Bureau
(HHPDR) Program authorized in 2016’s Water
of Reclamation. The smallest share of dams (2.4%) are
Infrastructure Improvements for the Nation (WIIN)
held by public utilities. Identifying dam owners is critical
Act is one new program that can help address existing
as funding rehabilitation and repair falls to them.

As of 2019, over half (56.4%) of U.S. dams were privately owned.10

The remaining dams are divided among a variety of owners; among them,

20%
are local
4.7%
are federal
4.8%
are owned by states

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funding needs. The goal of this program is to help fund in the NID rated poor or unsatisfactory with an EAP.
the repair, removal, or rehabilitation of the nation’s
When fully appropriated, the HHPDR program has the
non-federal, high-hazard-potential dams. In federal
potential to help repair some of the highest priority dam
fiscal year (FY) 2020 this program was funded at $10
safety rehabilitation projects in the country. Otherwise,
million, less than 0.1% of the ASDSO need estimate and
states must navigate a series of smaller state and federal
a quarter of its FY20 $40 million authorization.15
programs. Federal programs include those within the Bureau
Dam owners must meet eligibility requirements to receive of Reclamation and National Rural Conservation Services,
an HHPDR grant. Eligibility is subject to classification receiving more than $100 million in FY2019 for grants with
(a high-hazard-potential classification by the State Dam funding authority of more than $85 million. For the first
Safety Program) and requires applicants to fail to meet time in FY2021, Congress appropriated $12 million to the
minimum dam safety standards, pose an unacceptable Corps Water Infrastructure Financing Program (CWIFP),
risk to the public, and have an approved Emergency which enables local investment in infrastructure projects
Action Plan (EAP). As of June 2020, there are like dams that enhance community resilience to flooding,
approximately 60 projects across 25 states that could be promote economic prosperity, and improve environmental
construction-ready within the year based on pandemic- quality. While at the local level, nearly half of states have a
related stimulus funds that would require approximately grant or low-interest revolving loan program to assist dam
$538 million in total investment.16 Additionally, there owners with repairs. This local commitment of funds can
are 1,300 state-regulated high-hazard-potential dams help stretch the potential federal grants even further.

Source: EGLE Water Resource

EDENVILLE DAM POWERHOUSE & SPILLWAY

PUBLIC SAFETY
Dam failures not only put the public at risk, they can such as roads, bridges, and water systems. When a dam
also cost our economy billions of dollars in damages. fails, resources must be devoted to the prevention and
Failure includes more than the dam’s damage, but can treatment of public health risks as well as the resulting
negatively impact many other infrastructure systems, structural consequences.

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EAPs identify potential emergency conditions at a dam, program performance. The range of state-regulated high-
specify preplanned actions to be followed to minimize hazard-potential dams per staff ranges from 5.8 to 120.7,
property damage and loss of life should those conditions with a national average of 28.6 high-hazard-potential
occur, and are initiated in the event of an impending dams per Full-Time Equivalent (FTE) staff. Nineteen
dam failure or other uncontrolled releases of water. states have a staffing ratio more than 10 percent above the
The number of high-hazard-potential dams with EAPs national average. State numbers significantly above the
continues to steadily climb toward a recommended goal high-hazard-potential dams per FTE national average can
of 100%; as of 2018, 81% of dams have EAPs — up from be an indicator of the need for additional staff resources.
77% in 2017.17 Additionally, 34 states reported 90% or Adequate staffing can enable dam safety programs to
more of their high-hazard-potential dams had EAPs on improve inspection rates and asset monitoring, while also
file,18 while this same number of states saw 100% of their reducing dam owners’ challenges in completing needed
high-hazard-potential dams inspected in 2018.19 repairs and upgrades. At the federal level, the National
Dam Safety Program (NDSP), which was reauthorized
Every state except Alabama has established a regulatory
in 2018 through FY 2023, helps facilitate collaboration
program for dam safety that bears a large responsibility for
among stakeholders within federal agencies, states, and
public safety, including the certification of EAPs. These
owners to streamline dam safety roles and responsibilities.
programs have regulatory authority for 69% of the NID
dams.20 Further improving public safety is the increase in Finally, low head dams can pose a hazard to unassuming
staffing within state dam safety programs over the past public. A low-head dam is a relatively small, man-made
several years. In 2018, state programs spent nearly $60 structure spanning a river or stream where water flows
million21 on dam safety regulation, a 22% increase over the over the entire length of the dam. Moderate-to-high
previous four years. One result from this spending is an flows over these dams create turbulent and recirculating
increase in dam safety program staff — nearly 450 full- currents that can pull and trap individuals underwater.
time equivalents22 — across the 50 states. Because low head dams are inconspicuous, people are
often unaware of the dangers these structures pose.
Adequate staffing is important to state dam safety

RESILIENCE & INNOVATION

In some areas, engineers, dam owners, regulators, and flood information and tools they can use to enhance
emergency management professionals are making efforts their mitigation plans to protect public safety.24
to engage communities near dams to raise awareness of the The program looks at the lifetime of the asset and
potential damage from failure. By expanding community identifies other risks within the watershed, which
collaboration, stakeholders can support land use decisions, could include dam failures. Dam Watch, a web-based
emergency action planning, and maintenance and application, provides real-time monitoring of rainfall,
rehabilitation funding, that all help reduce community risk snowmelt, stream flow, and seismic events that could
and improve resilience in the long term. pose potential threats to dam safety. With its ability
to alert essential staff of critical events, Dam Watch
Further increasing resilience of dams throughout the
can help ensure Emergency Action Plans and related
country is the shift toward a risk-based decision-making
procedures are executed in a timely fashion. Finally,
process for the design, rehabilitation, and operation of
the ShakeCast system was developed by the U.S.
dams. This risk-based approach is innovatively coupled
Geological Survey (USGS) as a means of assisting in
with web-based tools developed by federal agencies,
post-earthquake disaster management, which among
like RiskMAP, DamWatch, and ShakeCast, that aid
other things can include notifying dam owners of
dam owners in identifying, mitigating, and reacting to
potential seismic risks.25 An extension of the USGS
potential structural and downstream risks.23
tool, ShakeCast can provide real-time information that
RiskMAP, or Risk Mapping, Assessment, and Planning, enables decisionmakers to take quick action to secure
is a FEMA program that provides communities with the asset and protect public health and safety.

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 RECOMMENDATIONS
TO RAISE THE GRADE
· Fully fund the national dam rehabilitation and repair funding program at its full
appropriation of $40 million to cost-share repairs for publicly owned, non-federal,
Dams high-hazard-potential dams.

· Develop emergency action plans for every high-hazard-potential dam by 2025.

· Implement a national public awareness campaign to educate individuals about high-

hazard-potential dams, specifically ensuring the public has a better understanding
of the dam rating system and how we determine condition as well as the location and
condition of dams in their area.

· Increase state funding for their respective dam safety programs, including adequate
staffing of state dam safety offices. Ensure all 50 states have dam safety programs.

· Encourage state and federal agencies to meet reporting deadlines to ensure that
adequate data on dams are available for policymakers to facilitate decision-making
on funding and to the general public to promote public awareness.

· Require federal agencies that own, operate, or regulate dams to meet the standards
of Federal Guidelines for Dam Safety.

· Encourage improved land use planning at the local level so that communication
about how dams affect local areas is more accurately known and considered in
future planning.

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 DEFINITIONS
EMERGENCY ACTION PLAN — A formal document that identifies potential emergency
conditions at a dam and specifies preplanned actions to be followed to minimize
property damage and loss of life should those conditions occur. The EAP contains
Dams procedures and information to assist the dam owner in issuing early warning
and notification messages to responsible downstream emergency management
authorities. It also should include inundation maps to show the emergency
management authorities the critical areas for action in case of an emergency.

DAM OWNER — Party or parties responsible for the safety and liability of the dam
and for financing its upkeep, upgrade, and repair.

DAM REGULATOR — Party or parties responsible for dam safety enforcement in-
cluding the safety evaluations of existing dams, review of plans and specifi-
cations for dam construction and major repair work, periodic inspections of
construction work on new and existing dams, and review and approval of emer-
gency action plans.

HIGH-HAZARD POTENTIAL DAM — A dam in which failure or mis-operation is

expected to result in loss of life and may also cause significant economic losses,
including damages to downstream property or critical infrastructure, environ-
mental damage, or disruption of lifeline facilities.

SIGNIFICANT-HAZARD POTENTIAL DAM — A dam in which the failure or

mis-operation is not expected to cause loss of life, but results in significant
economic losses, including damages to downstream property, critical infra-
structure, environmental damage, or disruption of lifeline facilities.

LOW-HAZARD POTENTIAL DAM — A dam located in a rural or agricultural area where

failure would not only cause the loss of the dam itself but may cause minor damage
to nonresidential and normally unoccupied buildings, or rural or agricultural land.

SOURCES
1. U.S. Army Corps of Engineers, “National Inventory of Dams,” 2020 partial update.

2. U.S. Army Corps of Engineers, “National Inventory of Dams,” 2020 partial update.

3. Association of State Dam Safety Officials, “State Performance and Current Issues,”
Risk of Failure.

4. U.S. Army Corps of Engineers, “National Inventory of Dams,” 2020 partial update.

5. U.S. Army Corps of Engineers, “National Inventory of Dams,” 2020 partial update.

6. Congressional Research Service, “Dam Safety Overview and the Federal Role,”
page 8, October 24, 2019.

7. U.S. Army Corps of Engineers, “National Inventory of Dams,” 2020 partial update.

8. Association of State Dam Safety Officials, “State Performance and Current Issues,”
Graph 3.

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 SOURCES (Cont.)
9. Congressional Research Service, “Dam Safety Overview and the Federal Role,” page
16, October 24, 2019.

Dams 10. Federal Emergency Management Agency, “Dam Ownership in the United States.”
https://www.fema.gov/dam-ownership-united-states (as of 10/22/19)

11. Congressional Research Service, “Dam Safety Overview and the Federal Role,” page
18, October 24, 2019.

12. Association of State Dam Safety Officials, The Cost of Rehabilitating Our Nation’s
Dams: A Methodology, Estimate & Proposed Funding Mechanisms,” December
2002, updated 2019.

13. Association of State Dam Safety Officials, The Cost of Rehabilitating Our Nation’s
Dams: A Methodology, Estimate & Proposed Funding Mechanisms,” December
2002, updated 2019.

14. Congressional Research Service, “Dam Safety Overview and the Federal Role,” page
34, October 24, 2019.

15. Federal Emergency Management Agency, “HHPDR Factsheet,” May 2020. https://
www.fema.gov/sites/default/files/2020-08/fema_HHPD-fact-sheet_05-15-2020.pdf

16. HHPDR Project Spreadsheet shared by ASDSO. – will need to revisit this number
closer to publication.

17. Association of State Dam Safety Officials, “State Performance and Current Issues,”
Emergency Action Plans (EAPs) for High-Hazard Potential Dams.

18. Association of State Dam Safety Officials, “State Performance and Current Issues,”
Emergency Action Plans (EAPs) for High-Hazard Potential Dams.

19. Association of State Dam Safety Officials, “State Performance and Current Issues,”
Inspections of High-Hazard Potential Dams.

20. Congressional Research Service, “Dam Safety Overview and the Federal Role,” page
16, October 24, 2019.
21. Association of State Dam Safety Officials, “State Performance and Current Issues,”
Graph 3.

22. Association of State Dam Safety Officials, “State Performance and Current Issues,”
Graph 5.

23. Congressional Research Service, “Dam Safety Overview and the Federal Role,” pages
12-13, October 24, 2019.

24. Federal Emergency Management Agency, “RiskMap Factsheet.” https://www.fema.

gov/flood-maps/tools-resources/risk-map

25. U.S. Geological Survey, “ShakeCast.”

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