The village of Gays Mills, Wisconsin experienced devastating flooding in 2007 and 2008 that damaged over 30 homes. An ESF-14 team developed a long-term recovery plan that considered relocating parts of the town to safer areas. The plan led to two new residential sites and the ongoing relocation process has acquired over 30 homes for demolition. Federal and state funding from multiple agencies has provided $18 million for acquisitions, elevations, infrastructure at the new sites, and economic development. While relocation has faced challenges from community resistance, the process is ongoing and has created a new downtown area and residential neighborhoods outside of the floodplain.

1. Moving a Town:
The Story of Gays Mills
Roxanne Gray, State Hazard Mitigation Officer
Lynsey Kawski, Disaster Response and
Recovery Planner

2. Community Profile
 Population: 625 (2000)
 Low income, high
unemployment
 Elderly population
 “Driftless Area”
 Kickapoo watershed
characterized by high
ridges and deep valleys
with steep slopes

4. Past Mitigation Efforts
 1935: Congressional assistance sought by residents to alleviate
flood damage.
 1938: USACE begins preliminary studies of flood reduction
measures.
 1940: Congress authorizes USACE to conduct surveys to
determine flood reduction feasibility.
 1962: Congress authorizes Kickapoo River Valley Flood Control
Project (i.e., known as the LaFarge Dam.)
 1975: Flood control project halted due to environmental issues.
 1976: URS Corporation completes USACE funded study entitled
“Alternatives for Flood Reduction and Recreation in the
Kickapoo River Valley.”

6. 1978
 Major flood disaster hits Kickapoo Valley
causing $10.5M in damage.
 Established Flood Avoidance Committee
to obtain community views on various
projects.
 Flood Reduction Study prepared by
consultant.
 Alternatives included levee, combination
of floodproofing and relocation, partial
relocation, total relocation, and do
nothing.
 No actions were implemented.
 Soldiers Grove, Wisconsin chose to move.

7. 2007
 August 2007 received 12” of
rain; a record-breaking flood.
 Village began working with
WEM on acquisition and
elevation projects.
 Village created Flood
Recovery Committee.
 Just prior to the flood the
Village completed a $1.2
million sewer improvement
project.

8. 2008
 Record-breaking snow
fall in winter 2007-08.
 Less than 10 months
after ’07 flood event.
 Kickapoo River rose to
20.44 feet above BFE.
 Both 2007 and 2008
events greater than a 500
year flood.

9. Past Successes
 2003 relocated the
Crawford County
Highway Shop in
downtown Gays Mills.
 2007 and 2008 floods
showed a return on
mitigation investment of
592%.
 Total Losses Avoided:
$3.9M.

10. 1719 (2007) HMGP
 Initial application
 Acquisition/demolition of 10 substantially damaged
properties (9 residential, 1 commercial.)
 Elevation of 18 structures (17 substantially damaged)
 After second flood revised
 Acquisition/demolition of 20 properties
 Elevation of 5 structures
 Historic school eventually withdrawn
 Total funds $1,429,866

11. 1768 (2008)
Pre ESF-14
 Mitigation already in process after the ’07
Floods, a Flood Recovery Committee
established.
 Community lacked strong leadership from
Village Board.
 At the JFO, WEM staff discussed involving
WAPA/APA to assist the village in flood
recovery planning.

12. 1768 (2008)
ESF-14 Long Term Community Planning Process
 Kickoff Meeting (8/20)  Design Charrette (9/19)
 Planning Charrettes  Presentation to Board
(8/20-21) (10/6)
 Community Meeting  Presentation of Draft
(9/18) Plan (10/20)

14. Alternatives
 No Action – rejected
 Levee – not feasible for
financial, risk and
technical reasons
 Partial relocation
 Total relocation
 Split between partial and
total relocation

15. Projects
 Economic and Flood
Recovery Coordinator
 Site development
 Maximize on HMGP
funding and match
 Low-cost improvements
to existing downtown
 Business incubator

16. 1768 (2008)
Post ESF-14
 Community believed that
the ESF-14 concept plan
was what they would
get—for free.
 Community didn’t want
to invest money into the
relocation.
 WEM coordinated the
initial multi-agency
response.

17. 1768 (2008) HMGP
 Acquisition/demolition
12 more substantially
damaged structures
 Elevation of 1
 $1,098,006
 Includes the EMS
building

18. HMGP Status
 Elevation of 5 structures completed
 33 offers-to-purchase accepted
 29 closings to date
 23 demolitions completed
 $2,527,872

19. Successes
 Providing direction to a tiny community with no
professional local government.
 Supplemental funds from other agencies.
 ESF 14 team’s specialties: historic and cultural,
environmental, communications, economic
development, public facilities, urban planning,
landscape architect, and grants.
 Partnership and collaboration with other
agencies developed from the 1993 floods.

20. Challenges
 Lack of communication, local
leadership, and local
capability (small, rural
community)
 Community expectations
(not going to change).
 Not a “Soldiers Grove”
 Outsiders very vocal against
relocation.
 Afraid of losing “downtown”
 Community believing in total
and complete consensus.

21. Additional Challenges
 Local media coverage.
 Funding for a flood
recovery coordinator.
 The plan itself

22. Current Situation
 2 relocation sites purchased
 Site A – Chestelson now
known as North Mills
 Site C – Dudgeon
 Mixed use
 Multiple agency collaboration
and funding streams
 Economic and Recovery
Coordinator (SSBG)
 Sustainability

23. North Mills
 Residential homes and
townhouses
 Mercantile Center owned
by the village
 Community Commerce
Center
 Library
 Village offices
 Community Kitchen

24. Status – North Mills
 34 sites available for residential housing
 2 - 5 unit townhouses completed; may build 2
more
 1 home completed; 3 more by end of 2010
 6 more planned for 2011

25. Site C - Dudgeon
 Small health clinic
 Assisted living facility
 EMS and Fire Department
 Public Works
 Additional business development

26. Funding
 Estimate $18 million
 FEMA/WEM (HMGP)
 Acquisition/demolition of substantially damaged properties
 Elevations
 EDA
 Infrastructure business portion
 Portion of village owned mercantile center
 Portion of Community Commerce Center
 Geothermal and solar systems
 3 years salary for central business district manager

27.  Rural Development
 Grants and loans
 Portion of infrastructure
 Portion of funding for Community Commerce Center and proposed
public works pending
 Funding programs for homeowners
 State DOC – CDBG
 Planning grant to hire consultant
 Match to HMGP and home rehab
 Acquisition costs for relocation sites
 Portion of infrastructure
 Portion of Community Commerce Center
 Funds pending for acquisition of additional floodplain properties and
construction of single family housing

28.  Coulee CAP financing and sponsorship of
townhouses and other housing
 DOT highway improvements
 State Dept. of Health Services – SSBG (expired
9/30/10.)
 TIF
 Private investments
 Land purchased for new marketplace to house
grocery store, gas station, bank, and car wash

29. Lessons Learned
 ESF-14 activate sooner and stay longer
 New “normal”
 Recognizing past efforts of state and locals
 Communications
 Supplemental funding (future expectations)

30. Roxanne Gray
State Hazard Mitigation Officer
608-242-3211
Roxanne.gray@wisconsin.gov
Lynsey Kawski
Disaster Response and Recovery Planner
608-242-3222
Lynsey.kawski@wisconsin.gov