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Fatal Flaws: Why the Walls Tumbled in New Orleans

Experts point to defects in design, construction and maintenance that left levees vulnerable.

January 17, 2006|Ralph Vartabedian and Stephen Braun | Times Staff Writers

NEW ORLEANS — In the frantic days after Hurricane Katrina, the Army Corps of Engineers scrambled to plug a breach on the 17th Street levee, dropping massive sandbags from a fleet of helicopters.

But the engineers were baffled: The sandbags kept disappearing into the watery breach. The pit eventually swallowed 2,000 sandbags, each weighing between 3,000 and 20,000 pounds. It was an early sign that the hurricane had opened an extraordinarily deep hole in the foundation of the storm wall, pointing to a fundamental breakdown in the engineering of the city's levee system.

Investigators recently told The Times that the 17th Street levee failed because its engineers made a series of crucial mistakes, one of which was to base the levee design on the average strength of the soil rather than on the strength of its weakest layer. The errors may reflect a loss of expertise during the 1990s, when the corps sharply downsized its soil laboratories.

The faulty soil analysis is one of many defects or flaws in concept, design, construction and maintenance that left many of the levees in New Orleans especially vulnerable to Katrina. Environmental miscalculations, including the loss of natural protection from marshes, added to the problems.

The errors might have been offset had the corps required larger safety margins, and that raises questions about the corps' internal culture.

Although the levees' shortcomings became apparent shortly after the hurricane hit, experts are only now pinpointing the underlying causes of the collapses. What they find will determine who bears the political and legal responsibility for the flood and provide a technical basis for any future levee system to protect New Orleans from a monster storm.

The levee failures were among the most costly engineering errors in the United States, measured by lives lost, people displaced and property destroyed, said half a dozen historians and disaster experts.

Katrina flooded New Orleans with about 250 billion gallons of water and killed more than 1,000 people.

"I don't think there is anything comparable in recent American history," said retired engineering professor Edward Wenk Jr., a science advisor to three presidents and investigator of the Exxon Valdez accident.

Early blame for the levee failures has fallen largely on the Army Corps of Engineers, the principal architect of a 40-year project to protect New Orleans from hurricanes.

Corps officials say they will accept responsibility for the failures if investigations prove that their supervision of the system was deficient.

"What I don't think we understand yet is the forces that caused those failures," said Lt. Gen. Carl Strock, corps commander and its chief of engineers. "A failure is really where a design does not perform as intended. If forces we designed for were exceeded, there may not be a design failure."

However, a preliminary report funded by the National Science Foundation has found evidence of design flaws in the city's concrete storm walls, where at least six catastrophic failures caused half of the flooding.

A handful of technical, civil and criminal investigations are underway, including an effort by the Justice Department to look for possible criminal negligence.

The corps is conducting the federal government's official investigation, despite widespread concern that only an independent board of investigators is likely to be impartial.

The corps was slow to make public all of its engineering paperwork on the levees and has still not produced a full record of the internal correspondence that occurred during the last 15 years. Moreover, it is not examining what role its organization and culture played in technical lapses, which, Wenk said, typically are at the root of engineering disasters.

The corps says it has addressed those concerns by recruiting outside experts to participate in its investigation. The agency is expected to make its final report in June.

The corps is attempting to temporarily repair 50 miles of damaged levees before the hurricane season next June. The Bush administration announced last month it would spend $3.1 billion for temporary levee repairs and limited upgrades in the next several years.

However, many local leaders believe the levee system must be strengthened to withstand the strongest possible hurricane -- a Category 5 -- to restore full confidence in the city.

Katrina, a Category 5 storm over the Gulf of Mexico, weakened to a Category 3 by the time it hit New Orleans.

Making his ninth visit to New Orleans since Katrina struck, President Bush last week praised the $3.1-billion initiative but said nothing about Category 5-level protection. And, according to the corps, even the temporary repairs and limited upgrades will not protect the city from another Category 3 storm, which has winds up to 130 mph and storm surges as high as 12 feet above normal.

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