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21st Century Dam Design
Advances and Adaptations
31st Annual USSD Conference
San Diego, California, April 11-15, 2011
On the Cover
Artist's rendition of San Vicente Dam after completion of the dam raise project to increase local storage and provide
a more flexible conveyance system for use during emergencies such as earthquakes that could curtail the regions
imported water supplies. The existing 220-foot-high dam, owned by the City of San Diego, will be raised by 117
feet to increase reservoir storage capacity by 152,000 acre-feet. The project will be the tallest dam raise in the
United States and tallest roller compacted concrete dam raise in the world.
The information contained in this publication regarding commercial projects or firms may not be used for
advertising or promotional purposes and may not be construed as an endorsement of any product or
from by the United States Society on Dams. USSD accepts no responsibility for the statements made
or the opinions expressed in this publication.
Copyright 2011 U.S. Society on Dams
Printed in the United States of America
Library of Congress Control Number: 2011924673
ISBN 978-1-884575-52-5
U.S. Society on Dams
1616 Seventeenth Street, #483
Denver, CO 80202
Telephone: 303-628-5430
Fax: 303-628-5431
E-mail: stephens@ussdams.org
Internet: www.ussdams.org
U.S. Society on Dams
Vision
To be the nation's leading organization of professionals dedicated to advancing the role of dams
for the benefit of society.
Mission USSD is dedicated to:
Advancing the knowledge of dam engineering, construction, planning, operation,
performance, rehabilitation, decommissioning, maintenance, security and safety;
Fostering dam technology for socially, environmentally and financially sustainable water
resources systems;
Providing public awareness of the role of dams in the management of the nation's water
resources;
Enhancing practices to meet current and future challenges on dams; and
Representing the United States as an active member of the International Commission on
Large Dams (ICOLD).

Managing Unexpected Endangered Species Issues 29
MANAGING UNEXPECTED ENDANGERED SPECIES ISSUES ON
BID-READY PROJECTS

Anita M. Hayworth, Ph.D.
1
Mary Putnam
2

Douglas Gettinger
3

Jeffrey D. Priest
4

Paul M. Lemons
5

ABSTRACT

Dam construction and subsequent reservoir inundation may affect sensitive plants and
wildlife, thus requiring rigorous environmental permitting. Even with permits in hand,
routine surveys may result in the unexpected discovery of sensitive species during project
implementation. For dam construction projects, delays or work stoppages to allow for
agency consultation and issuance of amended permits are problematic and potentially
expensive.

The San Vicente Dam Raise (SVDR) Project entails construction activity with habitat
impacts. Initial surveys indicated three federally listed endangered species were present.
A Biological Opinion for these species was issued as part of the Endangered Species Act
Section 7 consultation between the U.S. Fish & Wildlife Service (USFWS) and the U.S.
Army Corps of Engineers (Corps). However, during preconstruction surveys, a species
not addressed with the permits, the federally listed endangered Quino Checkerspot
Butterfly (Euphydryas editha quino) was unexpectedly observed on site.

To avoid delays and address the species, the Water Authority and its consultant (Dudek)
requested informal consultation with the agencies. Biologists were mobilized and Dudek
used a USFWS model to estimate occupied Quino Checkerspot Butterfly habitat. The
Water Authority team worked quickly and cooperatively with the agencies to conduct a
site visit, prepare graphics, provide the model results, and prepare documents for use in
permit amendments. Based on this information, impacts were calculated, mitigation was
negotiated, and the amended Corps Section 404 permit and Biological Opinion were
issued. The formal consultation process was completed in less than three weeks and
resulted in no change in the project schedule.

INTRODUCTION

Dam construction and reservoir inundation impacts native habitats, which may affect
sensitive plants and wildlife, thus requiring rigorous environmental permitting. Even

1
Senior Biologist/Senior Project Manager, Dudek, 605 Third Street, Encinitas, CA 92024,
ahayworth@dudek.com
2
Project Manager, San Diego County Water Authority, 4677 Overland Avenue, San Diego, CA 92123,
mputnam@sdcwa.org
3
Restoration Specialist, Dudek, 605 Third Street, Encinitas, CA 92024, dgettinger@dudek.com
4
Biologist, Dudek, 605 Third Street, Encinitas, CA 92024, jpriest@dudek.com
5
Biologist, Dudek, 605 Third Street, Encinitas, CA 92024, plemons@dudek.com

21st Century Dam Design Advances and Adaptations 30
with permits in hand, routine surveys may result in the unexpected discovery of sensitive
species during project implementation. For example, discovery of the federally listed
endangered Dehli Sands Flower-Loving Fly (Rhaphiomidas terminatus abdominalis) at a
218-acre San Bernardino County commercial development was stalled when the fly was
detected during surveys of the site (Flores 2002). The commercial project had been in the
various stages of permitting for years, had initiated construction at one point and then the
detection of the species halted all construction. For dam construction projects, delays or
work stoppages to allow for agency consultation and issuance of amended permits are
problematic and potentially expensive.

The San Diego County Water Authority (Water Authority) is currently building the San
Vicente Dam Raise (SVDR) using roller compacted concrete (RCC). San Vicente Dam is
located near the unincorporated town of Lakeside in San Diego County, California
(Figures 1 and 2). The SVDR Project combines two separate projects into a single
construction project, which raises San Vicente Dam by 117 feet above the existing height
of 220 feet for a total dam height of 337 feet.

The Water Authoritys Emergency Storage Project (ESP) is a large-scale, multi-location
storage project that was approved in 1996 and has been completed with the exception of
the SVDR Project, which is the fourth and final phase of ESP implementation. The
SVDR Project portion of the ESP is a 54-foot dam raise that will increase storage
capacity by 52,100 acre-feet. A separate Carry Over Storage Project (CSP) was approved
in 2008, which will increase the reservoir storage capacity by an additional 100,000 acre-
feet. This increased storage capacity is part of a regional strategy by the Water Authority
to improve service supply and reliability to its San Diego regional customers, particularly
in times of drought. The CSP raises the dam 63 feet beyond the previously approved and
permitted ESP dam raise, for an overall dam height increase of 117 feet, which would
result in a total increase in the existing reservoir storage capacity of approximately
152,100 acre-feet. The combined CSP/ESP dam raise projects are being constructed as a
single concurrent dam raise for cost and logistical purposes.

Implementation of the SVDR Project entails three main phases: (1) drawdown of the
water level at San Vicente Reservoir to allow for dam construction; (2) quarry excavation
and raised-dam construction (with appurtenant facilities); and (3) refilling of the
reservoir. The drawdown of the water level was completed in 2009 and the dam raise
work is now under construction. The Water Authority estimates that the dam construction
will take approximately three years, and the refilling period will be approximately three
to five years, depending on the availability of imported water and local watershed
precipitation inflows. The dam raise will be accomplished using RCC placed against the
downstream side and above the existing concrete gravity dam. In addition to raising the

Managing Unexpected Endangered Species Issues 31

21st Century Dam Design Advances and Adaptations 32

Managing Unexpected Endangered Species Issues 33
existing dam, the SVDR Project will require the construction of a saddle dam located to
the west of the main dam to prevent the heightened water level from spilling over a
topographic low-point in the reservoir rim; relocation of the Citys existing San Vicente
Marina that will be inundated by the raised water level; relocation of the marina access
road to connect with the new marina; construction of a new inlet/outlet facility; and
installation of a bypass pipeline extending from the new saddle dam to the First Aqueduct
Diversion Structure. The project will also require temporary staging areas located on
City-owned property downstream of the existing dam and within the marina expansion
area.

MATERIALS AND METHODS

The environmental study area for this projects biological resources impacts includes the
reservoirs future increased inundation level and construction areas necessary for project
implementation. The study area also includes an approximately 114-foot drinking water
supply buffer zone surrounding the raised high-water level, creating a net study area
extending 880 feet past the current reservoir high-water level. The study area for
biological resources includes all of the various project components, including staging
areas, a quarry site near the existing marina, access roads including a new marina access
road, and temporary structures. A new marina will result in additional impacts to native
vegetation communities and will be constructed west of the existing marina. The quarry
footprint that is not inundated or otherwise occupied by the new marina facilities will be
reseeded with native plant species after aggregate extraction and production.

Within the proposed reservoir and construction inundation area of the SVDR Project are
a number of native vegetation communities, as well as numerous native wildlife species
and species of special status. Vegetation communities and land covers located within the
project footprint include: open water, unvegetated channel, freshwater marsh, southern
coast live oak riparian forest, southern cottonwood-willow riparian forest, mulefat scrub,
southern willow scrub, coastal sage scrub, chaparral, non-native grassland, coast live oak
woodland, eucalyptus woodland, disturbed habitat, and urban/developed lands. Initial
project surveys indicated three federally listed threatened or endangered species (Coastal
California Gnatcatcher [Polioptila californica californica], Least Bells Vireo [Vireo
bellii pusillus], and Arroyo Toad [Anaxyrus californicus]) were present in the project
area. A Biological Opinion for these species was issued as part of the Endangered
Species Act Section 7 consultation between the USFWS and Corps.

The Quino Checkerspot Butterfly is a federally listed endangered species (Figure 3).
Currently, the distribution of the butterfly is limited to western Riverside County,
southern San Diego County, and northern Baja California. This species is associated
with open habitats supporting its larval host plants, including sage scrub, open chaparral,
native grasslands, forblands, and vernal pools, of which, some of these habitats are
located within the project area. The primary larval food plant for this species is Dot-Seed
Plantain (Plantago erecta), a small annual plant that grows up to about 4 inches tall
during the winter and spring. Field observations and laboratory studies indicate that other
host plants may be used, including Common Owls Clover (Castilleja exserta ssp.

21st Century Dam Design Advances and Adaptations 34


Managing Unexpected Endangered Species Issues 35
exserta), Southern Chinese Houses (Collinsia concolor), and Birds Beak (Cordylanthus
rigidus). The Quino Checkerspot Butterfly is generally found at sites where high
densities of these host plants occur (USFWS 2002a). Threats limiting the distribution of
this species include loss of habitat to development and degradation of habitat.

Due to the potential for the endangered Quino Checkerspot Butterfly to be present within
the project components, preconstruction surveys were conducted for the species within
the areas anticipated to be impacted during the 2009 calendar year. While the butterfly
was previously known to occur within the region, it was not identified within the project
footprint during the environmental surveys conducted for both the CSP and ESP projects;
therefore, the Biological Opinion issued by the USFWS for the projects did not address
impacts to this species. There were approximately 140 acres of potential Quino
Checkerspot Butterfly habitat, including coastal sage scrub and southern mixed chaparral,
within the areas anticipated to be impacted during 2009.
Focused Quino Checkerspot Butterfly surveys were conducted by Dudek biologists
following the USFWS survey protocol, which requires that the surveyors have federal
take permits to conduct the surveys (USFWS 2002a, 2002b). The surveys included 10
visits within a 6-week period between March 4 and April 6, 2009. The survey methods
consisted of slowly walking roughly parallel transects throughout all potential habitat
within the survey area (i.e., all areas that are not excluded per the survey protocol,
generally including sage scrub, open chaparral, grasslands, open or sparsely vegetated
areas, hilltops, ridgelines, rocky outcrops, trails, and dirt roads). Survey routes were
arranged to thoroughly cover the survey area at a rate of no more than 10 to 15 acres per
hour. Mapping of Quino Checkerspot Butterfly host plant species was conducted on
March 1 and April 3, 2009, by Dudek biologists. All patches of host plant species were
recorded using Global Positioning System (GPS). The species name, patch size, and
estimated number of plants were recorded for each patch.
RESULTS

A single, adult Quino Checkerspot Butterfly was observed during the focused survey
(Figure 4). The butterfly was observed on a ridgeline in the southwest corner of the site,
and was observed flying and sunning on bare ground, rock, and deerweed. The habitat is
this area is a form of disturbed, previously cut coastal sage scrub that is best characterized
as monotypic stands of deerweed with scattered laurel sumac. The dominant shrub was
deerweed with approximately 40% to 60% bare ground.
Two species of Quino Checkerspot Butterfly larval host plants were observed on the site
during focused surveys: Dot-Seed Plantain (Plantago erecta; PE) and Common Owls-
Clover (Castilleja exserta ssp. exserta; Ce). Occurrences of the two larval host plants
throughout the survey area are shown on Figure 4. Potential adult butterfly

21st Century Dam Design Advances and Adaptations 36

Managing Unexpected Endangered Species Issues 37
nectar plants (Mattoni et al. 1997; USFWS 2002a, 2002b, 2003) noted during the
surveys also were recorded within the project area. The observation of the butterfly, in
combination with the presence of suitable host plant for Quino larvae and suitable nectar
plants for the adults resulted in the conclusion that the project area, although not
originally thought to be occupied, was indeed occupied by the federally listed endangered
butterfly species.
Since previous surveys were negative, the Quino Checkerspot Butterfly was not included
in the Biological Opinion, which allowed for take of federally listed endangered or
threatened species. Unfortunately, the pre-construction surveys were conducted after the
project was out for bid and the butterfly was discovered the day after bids were opened.
Surveys could not be conducted earlier due to specific survey protocols that require the
surveys to be done during the flight season, which changes each year based on specific
weather-related conditions. Because of the importance of the project, any delay in
contract award would not have been acceptable.

A model to determine and define occupied Quino Checkerspot Butterfly habitat was
prepared as directed by the USFWS. The model was based on the location of the adult
butterfly observation, the distance that the butterfly has been documented to travel, and
the location of suitable patches of the host plants of the larvae of the species. The
distance used to create the model included a radius of 200 meters from the location of the
adult and suitably sized patches of the main host plant (Dot-Seed Plantain), and 100
meters from the locations of the suitable-sized patches of the secondary host plant
(Common Owls-Clover) (Figure 5). Previously graded or disturbed areas, existing
structures and open water areas within the reservoir were designated as non-suitable
habitat. GIS was used to prepare the model of occupied Quino Checkerspot Butterfly
habitat with an overly of project footprint components. Direct impacts were quantified
that may occur to the Quino Checkerspot Butterfly as a result of the loss of modeled
occupied habitat. Based on the project design, a total of 10.34 acres of occupied butterfly
habitat will be permanently impacted by the construction of the marina access road. A
total of up to 9.48 acres of occupied Quino Checkerspot Butterfly habitat may be
temporarily impacted by the rock removal associated with the construction of the new
marina access road (Figure 6).

DISCUSSION

To expedite permit amendments, the Water Authority and its environmental consultant
(Dudek) immediately requested informal consultation with the agencies. Additional
biological field crews were mobilized and Dudek used a USFWS computer model to
estimate occupied Quino habitat. The Water Authority team worked quickly and
cooperatively with the agencies to conduct a site inspection, prepare graphics, provide the
Quino model results, and ghost write documents for use in preparing permit
amendments. Based on this information, impacts were calculated, mitigation was
negotiated, and the amended Corps Section 404 permit and Biological Opinion were
issued.


21st Century Dam Design Advances and Adaptations 38


Managing Unexpected Endangered Species Issues 39

21st Century Dam Design Advances and Adaptations 40
The Corps and the Water Authority proposed measures to avoid or otherwise minimize
the incidental take of the Quino Checkerspot Butterfly. Implementation of these
measures is intended to mitigate project-related biological impacts to the butterfly to
below a level of significance and in so doing, result in no project delays.

The following measures were proposed:

Debiting of coastal sage scrub mitigation credits equivalent to 10.34 acres of
occupied Quino Checkerspot Butterfly habitat at the San Miguel Conservation
Bank owned and operated by the Water Authority, at a 1:1 mitigation ratio;

Restoration to original, pre-project condition of up to 9.48 acres of rock removal
area in conjunction with the construction of the marina access road; actual
temporary disturbance areas will be mapped immediately after the rock removal
activity is deemed complete and actual temporary impact acreages will be
provided to the USFWS. Applicant will reserve 18.96 acres of Quino
Checkerspot Butterfly occupied coastal sage scrub habitat at the San Miguel
Conservation Bank as mitigation for rock removal activity impacts that are not
restored to their pre-project impact or biologically superior condition within three
growing seasons after the rock removal impacts are deemed complete. Applicant
will prepare a restoration and monitoring plan within 90 days of the issuance of a
Notice to Proceed for project construction that includes the rock removal activity,
and submit the plan to the Corps and USFWS. The Quino Checkerspot Butterfly
occupied habitat that is disturbed within the rock removal area will be revegetated
with a seed mixture reflective of the plant species composition documented for
butterfly habitat in the area.

Incorporation of all mitigation measures outlined in the project documents
including the Mitigation Monitoring and Reporting Program (MMRP; April 2008)
and the conservation measures included in the Biological Opinion (October 2008)
and Biological Assessment (August 2008).

Based on the model developed by the Water Authority and Dudek and the negotiation
with the USFWS, the conclusion regarding the potential take of the federally listed
endangered species was as follows: (1) The SVDR Project may result in take of the
Quino Checkerspot Buttefly as a result of permanent and temporary removal of modeled
occupied butterfly habitat; (2) Permanent impacts would total 10.34 acres of occupied
habitat; (3) Temporary impacts may total up to 9.48 acres of occupied habitat; and (4)
Potential impacts to the Quino Checkerspot Butterfly resulting from the SVDR Project
would not impact the continued existence of this species.
CONCLUSION

By implementing the SVDR Project monitoring and mitigation programs and the
conservation measures outlined in the Biological Opinion, it was concluded that the
project will not adversely affect the continued existence of the Quino Checkerspot

Managing Unexpected Endangered Species Issues 41
Butterfly. The project was authorized to incidentally take up to 10.34 acres permanently
and 9.48 acres temporarily of occupied Quino Checkerspot Butterfly habitat. To ensure
that projects are expedited, the Water Authority maintains service contracts with the
Corps and USFWS.

As a result of the unexpected discovery of a single endangered butterfly, the expedited
formal consultation process was completed in less than three weeks and resulted in no
change in the project schedule. Typically, the amendment process takes several months,
but by immediately addressing agency concerns and preparing the model as well as
written documents that the agencies could use in their permits, the process was drastically
shortened. Also, agency service contracts provided staff funding to prioritize and
expedite development of a solution for an unexpected, and untimely, endangered species
issue.

REFERENCES

Flores, J. Emilio. 2002. Endangered Fly Stalls Some California Projects. The New
York Times. Accessed October 11, 2010:
http://www.nytimes.com/2002/12/01/us/endangered-fly-stalls-some-california-
projects.html.

Jones & Stokes. 2008. Final Biological Assessment Carryover Storage and San Vicente
Dam Raise Project. August 2008.

Mattoni, R., G. Pratt, T. Longcore, J. Emmel, and J. George. 1997. The endangered
Quino checkerspot butterfly, Euphydryas editha quino (Lepidoptera: Nymphalidae). J.
Res. Lep. 34:99118.

San Diego County Water Authority and U.S. Army Corps of Engineers. 2008. Final
Environmental Impact Report/Environmental Impact Statement for the Carryover Storage
and San Vicente Dam Raise Project. April 2008.

San Diego County Water Authority. 2008. Final Environmental Impact
Report/Environmental Impact Statement for the Carryover Storage and San Vicente Dam
Raise Project. Mitigation Monitoring and Reporting Program. April 2008.

TAIC (Technology Associates). 2008. Biological Resources Technical Report, Carryover
Storage and San Vicente Dam Raise Project. April 2008.

USFWS (U.S. Fish & Wildlife Service). 2002a. Endangered and Threatened Wildlife and
Plants; Designation of Critical Habitat for the Quino Checkerspot Butterfly (Euphydryas
editha quino); Final Rule. Federal Register, 67(72).

USFWS. 2002b. Quino Checkerspot Butterfly (Euphydryas editha quino) Survey
Protocol Information. Carlsbad, Califorinia. February 2002. 8 pp.

21st Century Dam Design Advances and Adaptations 42
USFWS. 2003. Quino Checkerspot Butterfly Recovery Plan.
USFWS. 2008. Biological Opinion. San Diego County Water Authority Carryover
Storage and San Vicente Dam Raise Project, San Diego County, California. 2008B0061-
2008F0732. October 28, 2008