Floodplain Planning Information - Chehalis River Council

Updated: July 15, 1996

Back to top or Back to home page

-

FLOODPLAIN MANAGEMENT ASSOCIATION SEPTEMBER 96 FMA NEWS

FROM THE CHAIR By James Schaaf

Back to top or Back to home page

-

WETLANDS CATEGORIZATION

There has been interest for years in revising the Section 404 regulatory program to base decisions more on the relative values of wetlands as determined in advance based on the type or condition of the wetland. In response, several approaches have been proposed to classify or "categorize" wetlands based on relative value and assign commensurate levels of regulatory protection to each category.

Issues

Categorization proponents believe wetlands regulation would be improved by focusing agency resources on protection of the most valuable wetlands, by providing greater consistency and predictability in the permit review process, and by reducing regulatory burden for activities in lower value wetlands. However, some have raised concerns that a hierarchical approach to wetlands protection may result in "writing off" low value wetlands and increasing the potential for wetlands "takings" claims for high value wetlands. Additional concerns include the inadequacy of objective methods for identifying and evaluating wetland functions and values, and the increased reliance that some approaches place on mitigation techniques (i.e., wetland restoration and creation), which are still relatively new and unproved. State experience also indicates that categorization programs require substantial time and financial resources to implement.

Current Status

Wetland values are assessed on a case-by-case basis in the Section 404 permit review process. The level of review given an individual permit application is commensurate with the significance of the environmental impact, considering the relative value of the wetland and the impacts of the proposed activity. For many in the regulated community, however, such an approach does not provide sufficient predictability and certainty. Efforts in the mid-1980's to categorize wetlands nationally were abandoned because of scientific uncertainties. A number of States (most notably, New York, Maine, Vermont, and Delaware) have applied or are considering a categorization approach in their wetlands protection programs. Alternatively, some states are establishing wetland categories as they incorporate wetlands into their Water Quality Standards program. Categorization has worked most effectively in the context of local or regional watershed planning initiatives where the relative value of wetlands within the context of a particular watershed can be more accurately assessed.

Back to top or Back to home page

-

WHAT DOES "LOWEST FLOOR" REALLY MEAN?

For floodplain management purposes, the term "lowest floor" is used to define the lowest level of a building which must be located at or above the 100-year flood elevation (also called the base flood level). Communities which participate in the NFIP must require that new construction comply with this standard in accordance with the regulations.

NFIP floodplain management policy requires that all, floor levels of a building, except those exclusively used for parking of vehicles (i.e. garage), limited storage, or building access (i.e. stairs, elevator shafts; etc.) must be elevated to or above the base flood elevation. Thus, for example, any floor level equipped for such uses as a kitchen, dining, living, family or recreation room, bedroom, bathroom, or office may not be permitted below the base flood elevation. Basements (i.e. those enclosures with floor levels completely below ground level) are never permitted below the base flood elevation, unless an exception has been granted to the community by FEMA.

The allowance of certain reasonable uses below the BFE, such as parking of vehicles, is permitted because the amount of damage caused by flooding to these areas can easily be kept to a minimum by following design and construction requirements of the NFIP. Failure to meet these requirements can increase the structure's damage potential and result in application of higher insurance premiums. These requirements include:

* No machinery or equipment which service a building such as furnaces, air conditioners, heat pumps, hot water heaters, washers, dryers, elevator lift equipment, electrical junction and circuit breaker boxes, and/or food freezers are permitted below the BFE.

* All interior wall, floor and ceiling materials located below the BFE must be unfinished and resistant to flood damage.

* The walls of any enclosed area below the BFE must be constructed in a manner to prevent flotation, collapse, and lateral movement of the structure.

The last requirement necessitates design considerations for balancing expected flood loads by allowing water to automatically enter into, flow through (in higher velocity), and drain from the enclosed area. For example, under low velocity conditions, this may be accomplished simply by a series of small vents, louvers, or valves which permit the level of floodwaters inside the enclosed area to match rising and falling flood levels on the outside of the building.

For fully enclosed areas, balance of internal and external water pressure is controlled by the size and placement of the openings. NFIP floodplain management regulations require for all new construction and substantial improvements that fully enclosed areas below the lowest floor that are subject to flooding shall be designed to automatically equalize hydrostatic flood forces on exterior walls by allowing for the entry and exit of floodwaters. Designs for meeting this requirement must either be certified by a registered professional engineer or architect or meet or exceed the minimum criteria of two openings having a total net area of not less than one square inch for every square foot of enclosed area subject to flooding. Openings may be equipped with screens, louvers, valves, or other coverings or devices provided that they permit the automatic entry and exit or floodwaters.

The floor of an unfinished enclosed area at ground level or above, which is a crawl space, or space within the foundation walls, useable as areas for building maintenance, access, parking vehicles, or storing of articles and maintenance equipment (not machinery or equipment attached to the building) used in connection with the premises is not considered the building's lowest floor if the walls of the unfinished enclosed areas are constructed with openings (such as with parallel sheer walls, open lattice walls, discontinuous foundation walls, or combinations thereof) to facilitate the unimpeded movement of flood waters, or the walls are breakaway walls.

The unimpeded movement of flood water is imperative to equalize the hydrostatic pressure inside and outside of the walls of the building and/or garage.

The important concept of this is that sufficient effort in the design of the structure has been made to equalize the hydrostatic pressure inside and outside the walls of the building during conditions of flooding.

Back to top or Back to home page

-

ARE YOU LIABLE FOR MAKING FLOOD ZONE DETERMINATIONS?

The new Fannie Mae/Freddie Mac flood insurance guidelines require lenders to determine whether a structure is in a Special Flood Hazard Area (SFHA). The key distinction for government officials is between providing information and making a determination that a property is in or out of a SFHA. If you do make a determination and fill out the Standard Flood Hazard Determination Form (SFHDF), you could be liable for inaccuracies or misrepresentations. Local officials' only obligation is to have the information available and accessible to the public, including the determination companies.

Local officials should be extremely cautious about making flood zone determinations. The flood zone determination companies are being paid to use their expertise to make this determination and to guarantee that it is accurate. These companies cannot expect local officials to make the determination. This is not the local officials' responsibility, it is the lenders under federal law.

If a local official chooses to assist property owners in determining their flood zone status, it should be made clear that the determination is for informational purposes only. The property owner's lender must still have an official determination done on an approved form, with the preparer's name, address and telephone number listed. The preparer is the individual or company that made the determination, not the government agency or official that provided information. Local planning and zoning officials' names should not appear in this space. Local officials should make sure the lenders in their area understand this.

The making of flood zone determinations is a growing business and competition is keen. There are over 100 companies providing the service. To cut costs, some companies simply call local officials, asking them to interpret a flood map over the phone. It's best to not provide the interpretation. The local official has no way of knowing if the property information they are given is accurate. It is determination company's responsibility to visually interpret the correct map in making a determination. Any reputable company will have all the current maps for any area in which they do business. Local governments simply need to make the flood maps available for public review.

Communities currently participating in the Community Rating System (CRS) program may wish to take note of the requirements of Activity 320 - Map Information. This CRS activity is designed to reward communities for informing a requester of a property's flood zone status, not determine whether flood insurance is required. This activity does not create any liability for government officials. Make it clear to all requesters that the lender (or a third party hired by the lender) is still required to do an accurate determination and fill out the determination form.

[Adapted from article in Flood News]

Back to top or Back to home page

-

THE EFFECTS OF FLOODPLAIN MANAGEMENT ON FLOOD INSURANCE RATES: STRUCTURES IN FLOODPLAINS WITHOUT DETAILED STUDIES

Areas without detailed studies are those areas which are identified as a Special Flood Hazard Area (SFHA) on your Flood Insurance Rate Map (FIRM) and identified by only the letter "A", also referred to as unnumbered A zones. The flood insurance premium rates for new structures, substantially damaged structures, or substantially improved structures in an SFHA without a detailed study can be relatively expensive.

Construction within an unnumbered A zone is regulated under 44 Code of Federal Regulations, (CFR) Section 60.3(b). Among the requirements that community officials must enforce are:

* Subsection (3) - "Require that all new subdivision proposals and other proposed developments (including proposals for manufactured home parks or subdivisions) greater than 50 lots or 5 acres, whichever is the lesser, include within such proposals base flood data."

* Subsection (4) - "Obtain, review and reasonably utilize any base flood elevation and floodway data available from a federal, state, or other sources...

The base flood elevation data should be used as long as it reasonably reflects flooding conditions expected during the base flood, are not scientifically or technically incorrect, and represent the best available data. Community officials should also consider formally adopting the data by reference as part of their floodplain management regulations.

Base flood data may be available the U.S. Army, Corps of Engineers; the Natural Resources Conservation Service; and other regional, state and local agencies.

Community officials must also:

* Obtain the elevation (in relation to mean sea level) of the lowest floor (including basement) of all new and substantially improved structures.

* If a nonresidential structure has been floodproofed, obtain the elevation (in relation to mean sea level) to which the structure has been floodproofed.

* Maintain a record of all such information [44 CFR, Section 60.3(b)(5)].

By determining the base flood elevation, and assuring that structures are built in accordance with the National Flood Insurance Program (NFIP) regulations through the use of the elevation or flood-proofing information, local officials can assure that structures qualify for significantly lower flood insurance rates than policies rated with the base flood elevation undetermined.

The rating table that insurance agents use to determine flood insurance rates (effective April 30, 1996) includes building rates for structures without basements/enclosures.

[Adapted from article in Flood News]

Back to top or Back to home page

-

APPEALS FROM PROPOSED FLOOD ELEVATION DETERMINATIONS - ISSUES AND CONCERNS By Adnan A. Saad, Ph.D., P.E

This is the third in a series of articles concerning interpretation of NFlP regulations. The second article outlined the process of producing the preliminary Flood Insurance Rate Map (FIRM.) Opportunities are available to the community to make revisions at four stages of the production process before the FIRM becomes effective, namely:

* During the preparation of the draft Flood Insurance Study (FIS) by the Study Contractor (SC).

* After issuing the preliminary FIRM by FEMA and before the beginning of the appeal period.

* During the appeal period.

* Before issuing the final determination letter that initiates the six months compliance period after which the FIRM becomes effective.

Revision of the preliminary FIRM is simple if the community takes advantage of the process by selecting one of the first two options mentioned above. The information that the community can provide would be incorporated in the preliminary FIRM, if warranted, even before the publication of the Base Flood Elevations (BFE) in a local newspaper. The community has ample time to prepare data during these two stages and it would be difficult to prepare such data during the 90 days appeal period.

If the community elects to revise the preliminary FIRM during the appeal period, it is important that the community be aware of three basic components of the draft FIS:

* Field information including cross sections and topographic mapping.

* Hydrologic analysis.

* Hydraulic analysis.

It is equally important the community understand the requirements set forth in Section 67.6 of the NFIP regulations, Basis of Appeal The summary of these requirements is that the information submitted by the community must be better than the information used in the preliminary FIRM to warrant revision. Once the community understands the basis of the draft FIS and the backup data used, there are endless ways to revise the preliminary FIRM. Examples are given below:

* Providing additional cross sections of a reach if the draft used fewer cross sections.

* Providing new topographic mapping for delineation of the Special Flood Hazard Area (SFHA), if the draft used the available topo mapping, such as the USGS quad.

* Providing a HEC-1 model, for example, if the draft used the discharges of the effective FIRM.

In summary, the community should take advantage of all available avenues in revising the preliminary FIRM before the appeal period begins. The community should avoid delaying the request for revisions, until FEMA informs the community in the final determination letter that revision could be made any time after the FIRM becomes effective under Part 65 of the NFIP regulations. This is the last option any community wants to choose. It is a completely different process and has more stringent requirements.

Comments on the foregoing are welcomed. Please call the author at 703/690-6736 or fax him at 703/690-6747

[Adnan A. Saad is with A&M Consultants, PC, Fairfax, Virginia. He was formerly a senior technical staff member of FEMA's Technical Evaluation Contractor.]

Back to top or Back to home page

-

THE CORPS FLOOD PLAIN MANAGEMENT SERVICES PROGRAM

People that live and work in the flood plain need to know about the flood hazard and the actions that they can take to reduce property damage and to prevent the loss of life caused by flooding. The Flood Plain Management Services (FPMS) Program was developed by the Corps of Engineers specifically to address this need.

Authority, Objective, and Scope

The program's authority stems from Section 206 of the 1960 Flood Control Act (PL 86-645), as amended. Its objective is to foster public understanding of the options for dealing with flood hazards and to promote prudent use and management of the Nation's flood plains.

Land use adjustments based on proper planning and the employment of techniques for controlling and reducing flood damages provide a rational way to balance the advantages and disadvantages of human settlement on flood plains. These adjustments are the key to sound floodplain management.

Types of Assistance

The FPMS Program provides the full range of technical services and planning guidance that is needed to support effective floodplain management including:

* General Technical Services. The program develops or interprets site-specific data on obstructions to flood flows, flood formation and timing; flood depths or stages; flood-water velocities; and the extent, duration, and frequency of flooding. It also provides information on natural and cultural flood plain resources of note, and flood loss potentials before and after the use of flood plain management measures.

* General Planning Guidance. On a larger scale, the program provides assistance and guidance in the form of "Special Studies" on all aspects of flood plain management planning including the possible impacts of off-flood plain land use changes on the physical, socio-economic, and environmental conditions of the flood plain. This can range from helping a community identify present or future flood plain areas and related problems, to a broad assessment of which of the various remedial measures may be effectively used. Some of the most common types of Special Studies are:

* Flood Plain Delineation/Flood Hazard Evaluation Studies

* Dam Break Analysis Studies

* Hurricane Evacuation Studies

* Flood Warning/Preparedness Studies

* Regulatory Floodway Studies

* Comprehensive Flood Plain Management Studies

* Flood Damage Reduction Studies

* Urbanization Impact Studies

* Stormwater Management Studies

* Flood Proofing Studies

* Inventory of Flood Prone Structures.

* Guides, Pamphlets, and Supporting Studies. The program enables studies to be conducted to improve methods and procedures for mitigating flood damages. Also, for preparing guides and pamphlets on flood proofing techniques, flood plain regulations, flood plain occupancy, natural flood plain resources, and other related aspects of flood plain management.

The program also provides guidance and assistance for meeting standards of the National Flood Insurance Program and for conducting workshops and seminars on non-structural flood plain management measures, such as Flood Proofing.

Charges for Assistance

Upon request, program services are provided to state, regional, and local governments, Indian Tribes, and other non-federal public agencies without charge.

Program services also are offered to non-water resource Federal agencies and to the private sector on a 100% cost recovery basis. For most requests, payment is required before services are provided. A schedule of charges is used to recover the cost of services taking up to one day to provide. Letter requests or signed agreements are used to charge for those that take longer.

All requesters are encouraged to furnish available field survey data, maps, historical flood information and the like, to help reduce the cost of services.

How to Request Assistance

Agencies, governments, organizations, and individuals interested in flood-related information or assistance should contact the nearest Corps office for further information concerning this Program.

Information that is readily available will be provided in response to a telephone request. A letter request is required for assistance that involves developing new data, or making a map, or preparing a report.

Back to top or Back to home page

FEMA ESTABLISHES MAPPING COUNCIL

Back to top or Back to home page

-

WHAT'S BELOW YOUR LOWEST FLOOR?

No, it is not the title to a new horror movie, but the question posed above continues to puzzle floodplain managers as they try to apply floodplain management standards to residential and nonresidential structures. However, applying the regulations can be simplified if the definitions of a few words and knowledge of both the design and performance standards as they pertain to a community's flood damage prevention regulations are understood.

One of the most critical performance standards found in the National Flood Insurance Program (NFIP) regulations is to flood protect structures to or above the 100-year (base flood) elevation. Section 60.3(c)(2) of the NPIP regulations states that the lowest floor of a residential structure must be elevated to or above the 100-year flood elevation. Section 60.3(c)(3) adds that nonresidential or commercial structures can be either elevated or dry floodproofed to or above the 100-year flood elevation. The remainder of this article focuses on elevating structures; dry floodproofing may be an option for nonresidential structures.

Although the term "first floor" is commonly used, it has no place in a community's floodplain management program. NFIP standards and your community floodplain management regulations use the term lowest floor. As defined in the NFIP regulations, the lowest floor is:

the lowest floor of the lowest enclosed area (including basement). An unfinished or flood resistant enclosure, usable solely for parking of vehicles, building access or storage, in an area other than a basement area, is not considered a building's lowest floor, provided that such enclosure is built in accordance with the applicable design requirements specified in this ordinance for enclosures below the lowest floor.

A lowest floor may be the concrete slab when the structure has a "slab-on-grade" foundation, it may be the basement floor when the structure has a basement, or it may be the first floor when the structure is built on an enclosed area such as a crawl space.

Recall that the definition of the lowest floor of a structure includes. the "basement" floor. So, basement must be defined. The NFIP regulations define a basement as:

"any area of a building having its floor subgrade (below ground level) on all sides."

Of course, this definition includes buildings with standard 8-10 foot deep basements. However, the definition is also inclusive of any enclosed area in which the interior grade is lower than the exterior grade of the enclosed area on all sides. This is extremely important to local floodplain permitting officials since any enclosure defined as a "basement" must have its "basement" floor elevated to or above the 100-year flood elevation.

The final term that must be defined is that of an enclosure below the lowest floor. It is found within the definition of lowest floor:

"... An unfinished or flood resistant enclosure, usable solely for parking of vehicles, building access or storage, in an area other than a basement area, is not considered a building's lowest floor; provided that such enclosure is built in accordance with the applicable design requirements specified in this ordinance for enclosures below the lowest floor."

Three requirements are given here. First, the only uses recognized for an enclosure below the lowest floor are parking, building access and storage. In other words, enclosures below the lowest floor are not meant to be finished and certainly not to be used as living space. Second, enclosures below the lowest floor must not fall under the definition of a basement. For example, backfilling around the enclosed area could make it a basement if the grade on all sides of a structure outside of the enclosed area is higher than the grade inside the enclosed area. Finally, enclosures below the lowest floor must be designed to equalize the flood forces on the enclosure. The design requirements are found in community floodplain regulations under "Specific Standards".

A crawl space is not specifically defined in a community's floodplain regulations. If the local floodplain administrator receives a Special Flood Hazard Area Development (SFHA) permit application, he should carefully evaluate applications with plans showing a structure built on a crawl space. There have been several instances throughout the state where an applicant has proposed a structure with a crawl space and the local floodplain official allowed the development to proceed without applying any design or elevation standards. Once the structure was built, and flood insurance was required, the homeowner discovered that flood insurance was very expensive. Why? Because the enclosed area, initially called a crawl space, was actually a basement according to the community's floodplain regulations and flood insurance rating criteria.

In closing, please remember that many communities have building and zoning codes in addition to their floodplain regulations. Each code may have a slightly different definition of basements, first floor, lowest floor, crawl space, etc. When a structural development is proposed in an identified SFHA, the development must be evaluated against the criteria found in the community's floodplain regulations. In doing so, terms such as "first floor" and "crawl space" have no relevance. Local floodplain officials should be thinking in terms of lowest floor, basement, and enclosures below the lowest floor.

[Adapted from an article by Chad Berginnis, Planner, Division of Water, Ohio Department of Natural Resources]

Back to top or Back to home page

-

CRS CAN REDUCE INSURANCE PREMIUM

The Community Rating System (CRS) is a voluntary feature within the National Flood Insurance Program (NFIP) providing an incentive for communities to reduce flood insurance premiums by exceeding minimum NFIP floodplain management standards. For example, flood insurance premiums are adjusted to reflect community activities that reduce flood damage to existing buildings, to manage development in areas not mapped by the NFlP, to protect new buildings beyond the minimum NFIP protection level, to assist insurance agents obtain flood elevation data, and to educate people about community flood hazards and ways to reduce water damage. In participating in the CRS, communities proactively work to prevent surface water damage regardless of the source

The CRS has 18 creditable activities that can be directly implemented by the community or in some activities those initiated by a state or regional agency. These activities provide the basis for a point system on which CRS classifications are based. There are 10 classifications under CRS, with Class 10 receiving no premium reduction and Class I achieving the maximum allowable premium reduction of 45 percent. All NFIP communities begin as Class 10 communities. A Class 9 community is one which earns a 5 percent reduction in flood insurance by accumulating a minimum of 500 points from a variety of creditable activities. For every additional 500 points earned, an additional 5 percent reduction in flood insurace premium is available up to the 45 percent maximum. Nationwide in 1991, 28O communities (approximately 97 percent of new applicants) were confirmed as Class 9. Tulsa, Oklahoma currently leads all CRS communities with a Class 5 rating, achieving a 25 percent reduction in flood insurance premiums.

The most popular of the CRS activities is use of the Elevation Certificate (FEMA form), making floodplain determinations, drainage system maintenance, and the placing of flood information in a public library.

Since its inception, the CRS has refined and updated manuals, developed computer software application forms and offers three four and one-half day training courses at the Federal Emergency Management Institute at Emmittsburg, Maryland.

[From Floodlines]

Back to top or Back to home page

-

FMA TO ASSIST INTER-ORGANIZATIONAL COORDINATING COMMITTEE

At their meeting on September 11, 1996, the Association's Board of Directors accepted an invitation to join the Floodplain Management Coordination Group (FMCG). The FMCG is a newly formed interagency committee with a mission of identifying and implementing regulatory and non-regulatory tools for multi-objective floodplain management by program coordination. The goal of the effort is to minimize risk to human health, safety and property and to maintain and enhance environmental benefits of floodplains. The Association was invited to participate to provide a local perspective to the process.

Michael Callahan, a Director of the Association, was named by the Board to represent the Association on the FMCG. Chair Steve Bradley was named as alternate.

In addition to the Association, the agencies making up the FMCG include FEMA, Environmental Protection Agency, Corps of Engineers, Natural Resources Conservation Service, National Parks Service, CA Department of Water Resources, CA Office of Emergency Services, CA State Water Resources Control Board, CA State Lands Commission and the CA Governor's Office of Planning and Research. The FMCG is led by Mary Butterwick of the Environmental Protection Agency.

The activities of the FMCG will be reported in future issues of the newsletter.

Back to top or Back to home page

-

RESPONSIBILITIES OF THE LOCAL FLOODPLAIN ADMINISTRATOR

When your community agreed to participate in the National Flood Insurance Program, your city officials signed a Flood Damage Prevention Ordinance. In that ordinance your community agreed to regulate development in the 100-year floodplain in exchange for the availability of federal flood insurance, disaster assistance and federally backed loans for your community. So what does it mean to regulate development?

The number one responsibility of the local floodplain administrator is to ensure that all new construction or substantial improvement has its lowest floor (including basement) above the base flood elevation. That means that all new homes that are in the 100-year floodplain must have their lowest floor (including the basement) elevated above the Base Flood Elevation. This basically means no basements in the 100-year floodplain. If a Base Flood Elevation (BFE) has not been determined on your Flood Insurance Rate Map, then you can require homes to have their lowest floor two feet above the highest adjacent grade.

Another important responsibility for local floodplain administrators is to keep records of all development in the 100-year floodplain. Two documents should be completed for every building proposal in the floodplain: the Floodplain Development Permit and Elevation Certificate. The Floodplain Development Permit is required when building or enlarging a structure; when placing a manufactured home; or when mining, dredging, filling, grading, excavating, landscaping, or building or repairing roads and bridges within flood hazard areas. Anyone wishing to develop in the floodplain must obtain a permit application form from the floodplain administrator; fill it out, and submit it for approval before beginning any development activities. The local floodplain administrator then reviews the permit to see if it is complete and in compliance with the Flood Damage Prevention Ordinance. After review, the permit is either denied or approved. The completed permit is attached to the building permit.

An Elevation Certificate documents the Base Flood Elevation in comparison to the structure's lowest floor. This is an important record for you to keep with your building permits. The elevation certificate documents that you are ensuring that the structure's lowest floor is above the BFE and you are following the requirements in your Flood Damage Prevention Ordinance. It will also help the new homeowner keep their flood insurance premium low. For each foot above the Base Flood Elevation, flood insurance premiums decrease.

Another documentation that is required is the Biennial Report. This form is sent from FEMA every two years. The Biennial Report requests specific information concerning any changes to the community's flood hazard area, development activities that have taken place in the floodplain, and verification of the number of floodplain residents and structures. A copy of this form should be obtained for your records.

These are basic requirements for the National Flood Insurance Program. There are more specific requirements outlined in your Flood Damage Prevention Ordinance. Please take a few moments and review your ordinance to ensure you are making sound floodplain management decisions.

[From High and Dry]

#160;

Back to top or Back to home page

-

THE FLOODPLAIN AND ITS NATURAL VALUES

Floodplains are lowland areas adjacent to lakes, wetlands and rivers that are covered by water during a flood. Of course, the ability of the floodplain to carry and store floodwaters should be preserved and respected in order to protect human life and property from flood damage. However, undeveloped floodplains also provide many other natural and economic resource benefits. Floodplains often contain wetlands and other areas vital to a diverse and healthy ecosystem. By making wise land use decisions in the development and management of floodplains, beneficial functions are protected and negative impacts to the quality of the environment are reduced.

Parts of the floodplain that are also considered wetlands will, in addition to floodplain zonings, receive protection from federal, state and local wetland laws. These laws, such as the U.S. Army Corps of Engineers #167;404 Permit Program, regulate alterations to wetlands to preserve both the amount and integrity of the nation's remaining wetland resources.

The values and benefits of land located in floodplains include:

Habitat for Plants and Animals

Floodplain vegetation provides important resting, feeding and nesting areas for many waterfowl species. Undisturbed floodplains have high natural biological diversity and productivity. River corridors are frequently used as flyways for migrating birds. Fragmentation of continuous natural areas reduces their appeal and function for a wide variety of wildlife species.

Water Quality

Floodplain vegetation and soils serve as water filters, intercepting surface water runoff before it reaches the lake, stream or river. This process aids in the removal of excess nutrients, pollutants and sediments from the water and helps reduce the need for costly cleanups and sediment removal.

Green Space Corridors

Landowners and community partnerships can be formed in some cases to preserve a "green space corridor" or a multi-use area where trails, flood hazard reduction, wetland protection, fish and wildlife habitat improvement, water quality protection, environmental education and other beneficial uses can coexist.

Additional benefits of undeveloped floodplains can be realized through:

* Stormwater management, erosion control,

* Cultural resources.

* Natural products.

* Scientific study.

* Outdoor education.

* Recreational opportunities.

* Aesthetic values.

Protection and knowledgeable enhancement of floodplains and their associated resources is not only wise from an economic and public safety standpoint, it will help ensure that communities maintain their individual ecosystems.

(Adapted from Water Talk)

ART-Community Role in Floodplain Management

Back to top or Back to home page

-

THE COMMUNITY'S ROLE IN FLOODPLAIN MANAGEMENT

What is the role of the community in NFIP participation?

FEMA works with state and community governments to identify their flood hazard areas and publishes a Flood Hazard Boundary Map (FHBM) of those areas. When the community chooses to join the NFIP, it then must require permits for all construction or oth er development in these areas and ensure that construction materials and methods used will minimize flood damage. In return, the federal government makes flood insurance available. Subsidized premium rate schedules based on building occupancy are availa ble for all insurable buildings and their contents regardless of their contents regardless of their flood risk if the start of construction of the building preceded the publication of an effective Flood Insurance Rate Map (FIRM). FEMA will issue the comm unity's FIRM, usually after a Flood Insurance Study of risk zones and elevations.

The FIRM will indicate base flood elevations and flood hazard zones for insurance rating and floodplain management purposes. The community then must adopt or amend its floodplain management ordinances so they meet or exceed the additional stards for t he Special Flood Hazard Areas (SFHAs) identified on the FIRM. The community is then converted to the regular program of the NFIP, and increased amounts of flood insurance are made available, with insurance for new and substantially improved buildings bei ng rated on an actuarial or actual risk basis.

What is the difference between an FHBM and a FIRM?

An FHBM is based on approximate data and identifies, in general, the Special Flood Hazard Areas within a community. It is used in the emergency program of the NFIP for floodplain management and insurance purposes. A FIRM usually is issued following a flood risk assessment conducted in connection with the conversion to the regular program. If a detailed Flood Insurance Study has been performed, the FIRM will show base flood elevations and insurance risk zones in addition to floodplain boundaries. Th e FIRM may also show a delineation of the floodway. After the effective date of the FIRM, the community's floodplain management ordinances must be in compliance with regular program requirements based on the delineation of flood hazards.

Do state governments assist in implementing the NFIP?

At the request of the Federal Insurance Administrator, each governor has designated an agency of state or territorial government to coordiante that state's or territory's NFIP activities. These agencies often assist communities in developing and adopt ing necessary floodplain management measures. Some states require more stringent measures than those of the NFIP.

When FEMA uses the term, "floodplain management measures", what is meant?

"Floodplain management measures" refers to an overall community program of corrective and preventive measures for reducing future flood damage. These measures take a variety of forms and generally include zoning, subdivision or building requirements, or special-purpose floodplain ordinances.

Do the floodplain management measures required by the NFIP affect existing buildings?

They affect existing buildings only when the existing building is substantially improved.

What constitutes "substantial improvement"?

"Substantial improvement" is defined as any repair, reconstruction, or improvement of a building, the cost of which equals or exceeds 50 percent of the market value of the building either before the improvement or repair is started or before the damage occurrred if the building has been damaged and is being restored. It does not, however, include:

Actions taken for health, sanitary, or safety code specifications which are necessary solely to assure safe living Actions taken to comply with existing state or local codes and ordinances Alterations to a building listed on the National Register of Historical Places or a state inventory of historic places.

Do FEMA requirements apply to construction taking place outside the Special Flood Hazard Area within the community?

The local floodplain management ordinances required by the NFIP apply only to the Special Flood Hazard Area.

Can modifications be made to the basic floodplain management requirements? In developing their floodplain management ordinances, participating communities must meet at least the minimum regulatory standards issued by FIA. NFIP standards and policies are reviewed periodically and revised whenever appropriate.

Do federal requirements take precedence over state requirements?

The regulatory requirements set forth by FIA are the minimum measures acceptable for NFIP participation. More stringent requirements adopted by the local community or state would take precedence over the minimum regulatory requirements established for flood insurance availability.

Back to top or Back to home page

-

FEMA focus for next four years

ESTABLISHING DISASTER RESISTANT COMMUNITIES WILL BE FOCUS OF FEMA AND DIRECTOR JAMES LEE WITT OVER NEXT FOUR YEARS

Reducing the escalating costs of disaster assistance by promoting community responsibility will be the new focus of an unprecedented effort by the Federal Emergency Management Agency (FEMA), according to FEMA Director James Lee Witt. As he looks forward to his next four years at the helm of the nation's disaster response agency, Witt will concentrate on preventing people and communities from becoming victims of disasters by encouraging the concept of disaster-resistant communities.

"In the last five years, federal disaster expenditures have risen from $3.3 billion to more than $13 billion. The exploding cost of local and federal assistance can be reduced if communities take constructive actions to reduce damage prior to the next disaster," Witt said. "FEMA will embark on an ambitious campaign to prevent people and communities from becoming the victims of disasters. We are ready to work with city, county and state officials to establish disaster-resistant communities and promote safer, more economically sound neighborhoods throughout the nation."

In the next four years, FEMA will encourage the establishment of disaster-resistant communities by focusing on three areas of activity:

* Establishing a Pre-Disaster Mitigation Fund: FEMA will establish a pre-disaster mitigation fund which will provide financial incentives for high-risk communities to undertake mitigation efforts to protect infrastructure and buildings before disaster strikes. Congress gave FEMA $2 million in its fiscal year 1997 budget to start the effort. Mitigation is the effort undertaken by individuals and communities to reduce the loss of life and property in future disasters. Implementing a Public/Private Partnership for Emergency Management: FEMA is exploring partnership opportunities with the private sector to include the business community in the nation's emergency management system. The Public/Private Partnership for Emergency Management will identify disaster risks to communities, develop operating procedures for response activities, short-and long-term recovery planning, and executing training and exercise programs. The effort will also work closely with Congress and the insurance industry to develop a national all-hazards insurance program. Overhauling FEMA Public Assistance Programs: Two-thirds of all FEMA disaster assistance goes to rebuilding public infrastructure such as schools, roads, bridges damaged by disaster. FEMA is examining its Public Assistance Program to dramatically streamline the program's procedures and expedite a community's recovery.

In addition to the new agency initiatives, Witt will embark on a series of town hall meetings in high-risk areas throughout the country to encourage the concept of disaster-resistant communities. These meetings will bring together federal, state, local, private sector and non-profit partners to focus public attention on mitigation and community responsibility.

Since Witt became FEMA Director on April 6, 1993, his main objective has been to reduce the burden of disaster costs to American taxpayers while improving assistance to the nation's disaster victims and their communities. To accomplish this goal, Witt initiated efforts to streamline agency functions and enhance the delivery of federal relief to people devastated by natural and man-made disasters.

"Each of these initiatives allowed FEMA to dramatically cut the time it takes disaster victims to register and receive disaster assistance," Witt said. "No longer do people stand in line waiting to complete a paper application form that takes weeks to process. Now people register for assistance by telephone and FEMA disaster relief gets to victims in days instead of weeks."

Over the last four years, FEMA earned accolades for initiating efforts that have left the agency stronger and better equipped to meet the needs of the American people when disaster hits. Some accomplishments include: Establishing a rapid response capability with national teams deployable within four hours of an event. Developing a national teleregistration line that enables disaster victims to request disaster assistance with one toll-free phone call Computerizing the disaster assistance application process Establishing a national disaster finance center which reduced the delivery of disaster assistance checks from weeks to days. Applying technological advances such as a hand-held computerized inspection capability to streamline the delivery of disaster assistance.

"In the past four years, the American people have experienced some of the most costly disasters in our nation's history," said Witt." Establishing public trust and keeping President Clinton's commitment that the government would be there when the public was most in need, in the aftermath of disasters, was our goal."

Source:Federal Emergency Management Agency (FEMA)Office of Emergency Information & Public Affairs --- Washington, D.C.

#160; Back

Jan. 1997

Back to top or Back to home page

-

FEMA HEAD CALLS FOR RENEWED EFFORT TO REDUCE DISASTER RISKS IN REVIEW OF 1996 AGENCY ACTIVITIES WASHINGTON

The nation's top emergency manager today called for a renewed national commitment to control the rising toll of American disaster losses in the wake of this year's unusual siege of extreme weather and abnormal demand for federal aid.

"While we have vastly improved the nation #146;s emergency response capabilities in the past few years, our 1996 disaster experience clearly shows us that much more must be done to reduce future disaster risks and their costly effects," Federal Emergency Management Agency (FEMA) Director James Lee Witt said in reviewing the year's activities.

"Every person and community has a shared responsibility in seeing that this important job gets accomplished," Witt added. "To that end, our major efforts in the coming year will concentrate on providing financial incentives and instituting other measures to mitigate against disaster losses and ease the burden to the American taxpayer."

Witt noted that federal disaster expenditures in the past five years rose from $3.3 billion to more than $13 billion. "The exploding cost of local and federal assistance can be reduced if communities take constructive actions to reduce damage prior to the next disaster," Witt said.

In 1996, FEMA:

Responded to 75 major disasters and eight emergencies declared by the President involving 37 states, the District of Columbia, Puerto Rico, and the U.S. Virgin Islands.

Provided housing assistance worth $513.1 million in FEMA funding to 377,342 disaster victims and another $108 million in grants to help meet transportation, medical and other serious disaster-related needs of 61,926 affected individuals and families.

Authorized 75 fire suppression grants covering ten states in response to the near-record outbreak of wildfires in the western United States.

Launched a major national public awareness and education effort in response to the President's National Arson Prevention Initiative that included the establishment of a national clearinghouse for fire resources and information, funding for arson training programs, and workshops on juvenile fire-setting prevention.

Participated in the federal emergency planning for the 1996 Olympic Summer Games and supported the extensive multi-government agency security operations through the deployment of 12 task forces from FEMA #146;s National Urban Search and Rescue System.

Coordinated and chaired a multi-state and federal task force formed to examine resources and relief programs in response to the prolonged drought that plagued the nation #146;s southwest region this year.

Assisted in the federal response to the TWA airliner explosion and crash in New York City last summer.

According to agency year-end figures, more than half of the year's declared disasters, or a total of 40 declarations, resulted from seven high-impact incidents. Included were the East Coast Blizzards of '96 (14 declarations); the massive mid-Atlantic and Pacific Northwest floods in January and February (12 declarations); Hurricanes Bertha, Fran and Hortense last summer (nine declarations); and the Atlantic coastal storm that lashed the Northeast in October (five declarations).

From a cost standpoint, Witt noted that these seven events accounted for $1.3 billion of the more than $1.7 billion in FEMA funds that have been obligated to date in responding to the year #146;s declared disasters. Of the agency overall funding outlay, $661 million was expended in recovery aid for disaster-stricken individuals and families, and $730.1 million in assistance to communities for clean-up operations and restoring damaged public facilities.

FEMA disaster response and recovery statistics for 1966 also revealed that:

The year's single most costly disaster was Hurricane Fran, which ravaged North Carolina in early September and damaged parts of Maryland, Pennsylvania, South Carolina, Virginia and West Virginia. To date, $415.6 million in FEMA relief assistance has been provided to these affected states, with North Carolina receiving $359.1 million of the overall amount. Pennsylvania led the nation in the need for federal disaster aid, requiring six Presidential major disaster declarations to recover from the effects of a string of damaging natural disasters highlighted by the mid-Atlantic floods in January and Hurricane Fran in September. Multiple declarations also were issued for 20 other states including five for West Virginia; four each for New York and North Carolina; three each for Illinois, Maine, Maryland, Oregon and Virginia; and two each for Alabama, Indiana, Iowa, Kentucky, Massachusetts, Minnesota, New Hampshire, New Jersey, Ohio, Vermont and Washington State. Flooding as usual was the most common occurrence in 1996, figuring in 44 of the year's declared disasters. Severe winter storms were involved in 17 declarations, hurricanes and tropical storms in nine, and tornadoes in seven. Despite an active disaster year, the agency undertook a number of new initiatives as part of a continuing commitment to help advance state and local emergency preparedness and mitigation objectives. Some of more notable accomplishments in this area were: Established a set-aside of up to five percent of the total funding for the agency's Hazard Mitigation Grant Program which states were able to apply to any part of their State Hazard Mitigation Plan which reduces future loss of life and property damage. Introduced a new digitized flood data system as an innovative means for simplifying floodplain management, hazard analyses and risk assessment activities. Issued the first volume of FEMA's Compendium of Exemplary Practices in Emergency Management promoting partnerships with state and local governments, business and industry, volunteer organizations and other groups by providing referrals to knowledgeable sources for further information on any emergency management practice featured in the document. Sponsored a first-time technology exchange workshop that brought together representatives from 20 national research laboratories and 163 public emergency providers to discuss technological applications for emergency management as a means for building "technology spin-off" partnerships. Generated sharp increases in flood insurance policy sales and consumer awareness under a new Cover America campaign initiative that featured national media advertisements promoting the names and phone numbers of flood insurance agents and a referral program for people calling the National Flood Insurance Program #146;s (NFIP) toll-free telephone information service. Conducted a safety review of emergency preparedness systems at the chemical weapons stockpile site near Tooele, Utah, clearing the way for the newly-built disposal plant to begin incineration operations.

FEMA is the central point of contact within the federal government responsible for a wide variety of emergency preparedness and planning, mitigtion, and response and recovery activities. The agency administers the President's Disaster Relief Fund and coordinates federal assistance when major disasters and emergencies are declared. The aid supplements existing state and local resources and is authorized by the President only when those combined capabilities fall short of effective recovery.

Source:

Federal Emergency Management Agency (FEMA) Office of Emergency Information & Public Affairs --- Washington, D.C.

Back to top or Back to flood home page