National Nonstructural/

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National Nonstructural/ Flood Proofing Committee
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Nonstructural Measures for Flood Risk Management
and Policy, Guidance, and Law
Buffalo District Planning Conference
6 August 2009
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• Kenneth Zwickl, HQ
• Larry Buss, Omaha District
• Gene Barr, Huntington District
• Clark Frentzen, South Pacific Division
• Joseph Remondini, Tulsa District
• Stuart Davis, Institute for Water Research
• Randall Behm, Omaha District
• Mark Harberg, Fort Worth District
• Kim Gavigan, Los Angeles District
• Steve OLeary, Huntington District
• Keven Lovetro, New Orleans District
• Carol Holloway, Institute for Water Research

Team
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Mission

• Flood Proofing
• Nonstructural

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Definitions

• Nonstructural
• Structural

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National Nonstructural Flood Proofing Committee
Nonstructural Mitigation Measures
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Nonstructural Mitigation Measures

• Elevation
• Relocation
• Floodwalls,
  Levees Berms
• Buyout/Acquisition
• Dry Flood Proofing
• Wet Flood Proofing
• Flooding Warning/Preparedness
• National Flood Insurance Program

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Elevating on Extended Foundation Walls
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Elevating on Extended Foundation Walls
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Elevating on Extended Foundation Walls
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Elevating on Fill
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Elevating on Fill
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Elevating on Piers, Posts, Piles...
or Columns
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Elevation on Piers, Posts, Piles, or Columns
Piers
Posts
Piles
Columns
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Nonstructural Mitigation Measures

• Elevation
• Relocation
• Floodwalls,
  Levees and Berms
• Buyout/Acquisition
• Dry Flood Proofing
• Wet Flood Proofing
• Flooding Warning/Preparedness
• National Flood Insurance Program

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Relocation Process
Moving the Structure

• Evacuate temporary roadway
• Attach structure to trailer
• Transport structure to new site

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Relocation Process
Restoration of Old Site

• Demolish and remove foundation and pavement
• Disconnect and remove all utilities
• Grading and site stabilization

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Nonstructural Mitigation Measures

• Elevation
• Relocation
• Floodwalls, Levees and Berms
• Buyout/Acquisition
• Dry Flood Proofing
• Wet Flood Proofing
• Flooding Warning/Preparedness
• National Flood Insurance Program

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Construction Barriers Berms, Levees and Floodwalls
Berm or Levee
Sewer
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Three Foot Earthen Levee
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Flood Protection with Floodwalls
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Nonstructural Mitigation Measures

• Elevation
• Relocation
• Floodwalls, Levees
  and Berms
• Buyout/Acquisition
• Dry Flood Proofing
• Wet Flood Proofing
• Flooding Warning/Preparedness
• National Flood Insurance Program

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Basic Acquisition

• Acquire land and structures
• Demolish structures
• Easiest type of acquisition

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Nonstructural Mitigation Measures

• Elevation
• Relocation
• Floodwalls, Levees and Berms
• Buyout/Acquisition
• Dry Flood Proofing
• Wet Flood Proofing
• Flooding Warning/Preparedness
• National Flood Insurance Program

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Dry Floodproofing
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Dry Flood Proofing Methods
Waterproof Sealant
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Dry Flood Proofing Methods
Waterproof Sealant
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2 feet of water in back of house
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Nonstructural Mitigation Measures

• Elevation
• Relocation
• Floodwalls, Levees and Berms
• Buyout/Acquisition
• Dry Flood Proofing
• Wet Flood Proofing
• Flooding Warning/Preparedness
• National Flood Insurance Program

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Wet Flood Proofing
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Wet Flood Proofing
Elevate Utilities
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Wet Flood Proofing
Elevate Utilities
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Wet Flood Proofing
Let Water In
Louvre
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Nonstructural Mitigation Measures

• Elevation
• Relocation
• Floodwalls, Levees and Berms
• Buyout/Acquisition
• Dry Flood Proofing
• Wet Flood Proofing
• Flooding Warning/Preparedness
• National Flood Insurance Program

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Flood Warning/Preparedness Components

• Flood Threat Recognition System
• Warning Dissemination
• Emergency Response
• Post-Flood Recovery
• Continued Plan Management

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Flood Warning/Preparedness Components
Flood Threat Recognition System

• Collection of information
• Transmission of Information
• Receipt of information
• Organization/Display of information
• Prediction or timing and magnitude of flood event

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Flood Warning/Preparedness Components
Warning Dissemination

• Determine affected areas
• Identify affected parties
• Prepare warning message
• Distribute warning message

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Flood Warning/Preparedness Components
Emergency Response

• Temporary evacuation
• Search and rescue
• Mass care
  center
  operations
• Public
  property
  protection
• Flood fight
• Maintenance of vital services

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Flood Warning/Preparedness Components
Post-Flood Recovery

• Evacuee return
• Debris clearance
• Return of services
• Damage assessment
• Provisions for assistance

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Flood Warning/Preparedness Components
Continued Plan Management

• Public Awareness/Education Programs
• OM equipment
• Periodic drills
• Update plan

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Flood Warning System
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Alert

• Remote rain and stage gages
• Transmit information
• Base station computer
• Process information
• Automated threatened area notification (most
  advance systems)

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Automated Stage Detection

• Float switch/submersed electric circuit activated
  by rising water
• Telephone automatic alarm dialers activated
• Calls placed to emergency managers
• Manual threatened area notification

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Manual

• Observer read stage or rain gages.
• Two way telephonic communication between
  observers and emergency managers
• Manual threatened area notification

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Hybrid

• Combination of Alert and USGS stream gaging
  methods and equipment
• Remote rain and stage gages
• Transmit information
• Base station computer or two way telephonic
  communication with gages
• Manual or automated threatened area notification

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Nonstructural Mitigation Measures

• Elevation
• Relocation
• Floodwalls, Levees and Berms
• Buyout/Acquisition
• Dry Flood Proofing
• Wet Flood Proofing
• Flooding Warning/Preparedness
• National Flood Insurance Program

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National Flood Insurance Program 44CFR 59-78

• Flood Plain Regulation
• Flood Insurance
• Flood Mitigation

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Why InvestigateNonstructural Measures ?

• Requirements
• Opportunities

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Requirements

• The Flood Control Act of 1938 authorized the
  Corps where the construction cost of levees or
  flood walls included in any authorized project
  can be substantially reduced by the evacuation of
  a portion or all of the area proposed to be
  protected to expend funds toward the evacuation
  of the locality eliminated from protection and
  the rehabilitation of the persons so evacuated.

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Requirements

• The Flood Control Act of 1960 authorized the
  Corps to compile and disseminate information on
  floods and flood damages, including
  identification of areas subject to inundation by
  floods of various magnitudes and frequencies, and
  general criteria for guidance in the use of flood
  plain areas, and to provide engineering advice to
  local interests for their use in planning to
  ameliorate the flood hazard. This is the Flood
  Plain Management Services Program.

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Requirements

• National Flood Insurance Act of 1968 authorized
  the National Flood Insurance Program, which has
  evolved to generally consist of flood insurance,
  flood plain regulation, and flood hazard
  mitigation through primarily nonstructural
  measures.

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Requirements

• The Water Resources Development Act of 1974
  requires of the Corps that consideration shall
  be given to nonstructural alternatives to prevent
  or reduce flood damages.

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Requirements

• Executive Order 11988 dated 24 May 1977
  requires the Corps to implement action to reduce
  the risk of flood loss, to minimize the impact of
  floods on human safety, health and welfare, and
  to restore and preserve the natural and
  beneficial values served by floodplains.

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Requirements

• Economic and Environmental Principles and
  Guidelines for Water and Related Land Resources
  Implementation Studies dated March 1983 (PG)
  requires of the Corps that nonstructural
  measures should be considered as means for
  addressing problems and opportunities in water
  and related land resources implementation studies.

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Requirements

• Digest of Water Resources Policies and
  Authorities EP 1165-2-1 requires that
  Consideration will be given both to measures
  intended to modify flood behavior structural
  measures and those intended to modify damage
  susceptibility by altering the ways in which
  people would otherwise occupy and use flood plain
  lands and waters nonstructural measures.

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Requirements

• Planning Guidance Notebook
• ER 1105-2-100 requires nonstructural measure
  consideration by stating Section 73 of the
  Water Resources Development Act of 1974 requires
  consideration of nonstructural alternatives in
  flood damage reduction studies.

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Opportunities

• Another set of tools
• No Adverse Impacts
• Flood Plain
• Environmental
• Complies with E.O. 11988
• Complies with NFIP Regulations
• HMGP acquired land
• Insurable structures/Fill in floodway

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Opportunities (cont.)

• New Uses of the Evacuated Flood Plain
• Ecosystem Restoration
• Recreation
• Spillover Benefits
• Water Quality Improvement
• Recreation Costs - 50 versus 10
• Cost Sharing
• 35 / 65
• Lower Cost - Possible
• Mitigation of Adverse Effects of Structural
  Projects

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Opportunities (cont.)

• Achievement of Strategic Goals
• Achievement of the Environmental
• Operating Principles
• Achievement of Actions for Change
• Partnering
• Lower OM Costs
• Supports both short term and long term flood
  risk reduction
• Redundant flood risk reduction - consequence
  focused.

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National Flood Insurance Program 44 CFR 59-78
Flood Plain Regulation 44 CFR 60

• Definitions
• Base Flood
• Flood
• Flood Plain
• Floodway
• Substantial Damage
• Substantial Improvement

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Coastal Flood Plain

• V Zone
• Coastal A Zone
• A Zone
• X Zone

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• Flood Plain Regulation
• Flood Insurance
• Flood Mitigation

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Requirements - Riverine

• All new construction and substantial improvements
  of
• Residential structures have the lowest floor,
  including basement, elevated to or above the Base
  Flood
• Non-Residential structures have the lowest floor,
  including basement, flood proofed to or above the
  Base Flood

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Requirements - Riverine

• Prohibit encroachments within the floodway unless
  it has been demonstrated through hydrologic and
  hydraulic analysis that the proposed encroachment
  will not result in any increase in the Base Flood
  Elevation

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Requirements - Coastal

• All new construction and substantial improvements
  of
• Residential structures have the lowest floor,
  including basement, elevated to or above the Base
  Flood
• Non-Residential structures have the lowest floor,
  including basement, flood proofed to or above the
  Base Flood

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Requirements - Coastal

• All new construction and substantial improvements
  within V zones
• Be elevated on piles or columns so the bottom of
  the lowest horizontal structural member is
  Elevated to or above the Base Flood with the
  space below the lowest floor either free of
  obstruction or constructed with breakaway wall or
  open lattice
• Do not use Fill

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• Flood Plain Regulation
• Flood Insurance
• Flood Mitigation

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• Flood Insurance
• Definitions

• Basement
• Building
• Post FIRM building
• Pre FIRM building
• Walled and Roofed

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• Flood Insurance
• Definitions

• Basement any area of a building having its
  floor subgrade below ground level on all sides
• Building a walled and roofed structure that is
  principally above ground and affixed to a
  permanent site
• Post FIRM building a building for which the
  start of construction or substantial improvement
  occurred on or after the effective date of the
  initial FIRM for the community

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• Flood Insurance
• Definitions

• Pre FIRM building a building for which the
  start of construction or substantial improvement
  occurred before the effective date of the initial
  FIRM for the community
• Walled and Roofed the building has in place two
  or more exterior rigid walls and the roof is
  fully secured so that the building will resist
  flotation, collapse, and lateral movement

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• Flood Insurance

• General dwelling losses not covered
• Loss of insured property use
• Loss of access to insured property
• Loss of profits
• Losses resulting from additional living expenses
  while the insured property is being repaired
• Losses resulting from casualties other than as
  defined as a flood

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• Flood Insurance

• Dwelling Property covered
• Building Property
• The building
• Additions and extensions to the building
• Materials and supplies to be used in constructing
  or altering the building
• Fixtures, machinery, and equipment within the
  building and owned by the insured such as
  furnaces, permanently installed wall mirrors,
  cupboards, bookcases, paneling, wallpaper,
  blinds, dishwashers, carpet, and garbage
  disposals, pumps, plumbing, ranges, stoves,
  refrigerators, etc.

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• Flood Insurance

• Dwelling Property covered
• Personal Property
• Owned by the insured or members within the
  insureds household if stored within the building
  and secured to prevent flotation out of the
  building during flooding
• Debris Removal
• Expense of debris removal if directly caused by a
  flood

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• Flood Insurance

• Dwelling Property not covered
• Personal property in the open
• Fences, retaining walls, docks, etc.
• Indoor and outdoor pools
• Underground structures and equipment
• Land, lawns, trees, etc.
• Animals
• Aircraft, watercraft
• Manufactured homes that are not anchored
• Post FIRM basements in SFHAs
• Personal property
• Fixtures/components attached to the building but
  not needed for building support or utilities
• Finished walls

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• Flood Plain Regulation
• Flood Insurance
• Flood Mitigation

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Hazard Mitigation Grant Program

• Project criteria
• Conform with hazard mitigation plan
• Be cost effective
• Conform with flood plain management criteria
• Have a beneficial impact on the designated
  disaster area
• 75/25 cost share
• Generally funded at 15 of total disaster grants

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Hazard Mitigation Grant Program

• Types of Projects
• Structural
• Nonstructural
• Acquisition/relocation
• Develop state and local mitigation standards
• Develop comprehensive hazard mitigation programs
  with implementation as an essential component
• Develop or improve warning systems

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Flood Mitigation Assistance Program

• Planning grants
• Develop flood hazard mitigation plans
• 75/25 cost share
• Project grants
• Implement flood mitigation projects contained in
  the flood hazard mitigation plan
• 75/25 cost share
• Technical assistance grants
• To aid applicants in applying for the FMA Program
• 100/0 cost share
• 31 Million

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• Pre-Disaster Mitigation Program
• Mitigates all natural disasters not
  just flood
• Must have approved mitigation plan for
  project funds
• 75/25 cost share
• Be cost effective
• Eligible projects
• Mitigation planning
• Mitigation projects
• Information dissemination
• 100 Million

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Repetitive Flood Claims Grant Program

• One or more claims to NFIP
• Relocation/Buyout/
• Open Space Use
• Possible 100 Federal
• Up to 10 Million
• 75/25 Cost Share Standard

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Repetitive Loss

• Four or more paid losses of 1,000 or more
• Two paid losses within a 10-year period
• Three or more paid losses since 1978

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Severe Repetitive Loss Program

• Severe Repetitive Loss Properties
• Residential
• Four NFIP claims over 5,000 each
• At least two claims within any 10 year period
• At least two claims that cumulatively exceed the
  value of the property
• Possible 90 Federal
• 75/25 Cost Share Standard
• Up to 40 Million

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Community Rating System

• Credible activities
• Public Information
• Elevation certificates
• Map information
• Outreach programs
• Hazard Disclosure
• Flood protection library
• Flood protection assistance

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Mapping and Regulatory

• Open space preservation
• Higher regulatory standards
• Flood data maintenance
• Stormwater management

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Flood Damage Reduction Activities

• Flood plain management plans
• Acquisition and relocation
• Retrofitting
• Drainage

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Flood Preparedness Activities

• Flood Warning Program
• Levee Safety
• Dam Safety

Maximum flood insurance premium reduction is 45
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Flood Plain Management Criteria Relative
to Structural Flood Damage Reduction
Projects
National Flood Insurance Program

• Basic requirements of the structural flood damage
  reduction project
• No adopted regulatory floodway
• The project will not increase the Base Flood
  Elevation (BFE) more than a foot at any location

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Flood Plain Management Criteria Relative to
Structural Flood Damage Reduction Projects
National Flood Insurance Program

• Adopted regulatory floodway
• The project will not place fill material or new
  construction within the regulatory floodway
  unless it is demonstrated that no increase in the
  BFE will occur

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• Conditional Letter of Map Revision (CLOMR).
  Basic requirements of the CLOMR are as follows
• Request for conditional approval of the FIRM
  change.
• Evaluate alternatives which would not result in
  an increase in BFE
• Document that individual legal notice has been
  made to all increased BFE
• Gain concurrence of other impacted communities.

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• Conditional Letter of Map Revision (CLOMR).
  Basic requirements of the CLOMR are as follows
• Certify that no structures are located in areas
  impacted by the increased BFE
• Provide documentation of hydrologic and hydraulic
  analysis reflecting the increase in BFE and
  change in floodway
• Provide a plan to mitigate the increased BFE and
  change in floodway.
• A Letter of Map Revision (LOMR) submittal is
  required upon project completion.

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Executive Order 11988 Flood Plain Management

• Basic Objectives
• Provide leadership in flood plain management
• Avoid long and short term adverse flood plain
  impacts associated with projects.
• Avoid direct and indirect support of development
  in the flood plain.
• Reduce the risk of flood loss.
• Minimize the impact of floods on health, safety,
  and welfare. Restore and preserve the natural
  and beneficial values of flood plains.
• Involve the public throughout the flood plain
  management decision process.

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Executive Order 11988 Flood Plain Management

• Basic Steps
• Determine whether the project is in 100-year or
  500-year flood plain.
• Notify the public early of a project that is
  proposed to be 100-year or 500-year flood plain
  to involve local decision makers in the decision
  process.
• Identify and evaluate practicable alternatives to
  locating the project in the flood plain.
• Identify the potential direct and indirect
  impacts with the project in the flood plain.

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Executive Order 11988 Flood Plain Management

• Basic Steps
• Minimize the potential adverse impacts to or
  within the flood plain.
• Reevaluate the project to see if it is still
  practicable in light of the impact to others
• Provide the public with the findings and
  explanation that the project in the flood plain
  is the only practicable alternative.
• Provide for mitigation of adverse affects of the
  project.

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Basic Steps

• NFIP standards are minimum
• If locating "new construction" in a flood plain,
  flood proofing should be applied

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Critical Actions

• A slight chance of flooding is too great
• If flooded, would the flood effects be worsened
• Risk to public safety and increased hazard to
  life
• 500 year flood standard minimum

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Executive Order 11988 Flood Plain Management

• Basic Mitigation Requirements
• Land
• Land that is within the regulatory floodway
  post-project that was not within the regulatory
  floodway pre-project.
• Land that is within the 100-year flood boundary
  post-project that was not within the 100-year
  flood boundary pre-project.
• Land that is in the pre-project floodway that has
  a floodway elevation post-project that is higher
  than the pre-project floodway elevation.
• Mitigation.

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Executive Order 11988 Flood Plain Management

• National Flood Insurance Program (NFIP) Insurable
  Structures
• Structures that are within the regulatory
  floodway post project that were not within the
  regulatory floodway pre-project.
• Structures that are within the 100-year flood
  boundary post-project that were not in the
  100-year flood boundary pre-project.
• Structures that are subject to a 100-year flood
  water surface elevation post-project that is
  higher than the 100-year flood water surface
  elevation pre-project.
• Mitigation

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Executive Order 11988 Flood Plain Management

• State Minimum Standards for Flood Plain
  Management
• Varies from State to State
• Are always equal to or more restrictive than that
  of the NFIP in terms of
• Flood plain regulation
• Elevation above the BFE.
• Allowable rise due to fill or new construction in
  the flood plain
• Mitigation of adverse impacts of projects.

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Section 202 of WRDA 1996Flood Plain Management
Plans

• Applies to any flood damage reduction project
  which had the PPA signed after 12 October 1996.
• Non Federal interests must prepare a flood
  plain management plan designed to reduce impacts
  of future floods in the project area
• Develop within one year of PPA execution
• Implement within one year after project
  completion
• Primarily non structural measures are used

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Section 402 of WRDA 1986

• Applies to all flood damage reduction projects
• Non Federal interests shall comply with
  applicable Federal flood plain management and
  flood insurance programs.

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Section 219 of WRDA 1999

• Applies to the analysis of nonstructural buyout
  and relocations measures
• All projects
• Benefit Calculation
• Use both externalized and internalized portions
  of flood damages prevented
• Valued new use of evaluated flood plain
• Reduction in damages to public property
• Reduction in emergency costs
• Reduction in admin costs of NFIP and disaster
  relief
• Damages prevented

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Section 219 of WRDA 1999 (cont.)

• For real estate costs use comparable flood free
  land and building cost
• Betterments to gain DSS and housing costs of last
  resort are not included in flood free property
  cost.

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Uniform Relocation Assistance and Real Property
Policies Act of 1970 and the Uniform Relocation
Act Amendments of 1987

• Purpose
• To ensure that persons displaced as a direct
  result of Federal and federally-assisted projects
  are treated fairly, consistently, and equitably
  so that such persons will not suffer
  disproportionate injuries as a result of projects
  designed for the benefit of the public as a
  whole.

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• Applicability
• The requirements apply to any acquisition of real
  property for a federal project or project, and to
  programs and projects where there is Federal
  financial assistance in any part of project costs
  except for
• Voluntary transactions that meet all of the
  following conditions
• No specific site or property needs to be acquired
• The property to be acquired is not part of an
  intended, planned, or designated project area
  where all or substantially all of the property
  within the area is to be acquired within specific
  time limits
• The Agency will not acquire the property in the
  event negotiations fail to result in an amicable
  agreement, and the owner is so informed in
  writing.
• The Agency will inform the owner of what it
  believes to be fair market value of the property.

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Comparable Replacement Dwelling

• Decent, Safe, and Sanitary
• Functionally Equivalent to the present dwelling
• Located in an area not less desirable than the
  present location
• Currently available in the private market
• Within the financial means of the displaced person

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Uniform Relocation Assistance and Real Property
Policies Act of 1970 and the Uniform Relocation
Act Amendments of 1987

• The term decent, safe, and sanitary means a
  dwelling which
• Is structurally sound, weathertight, and in good
  repair.
• Contains a safe electrical wiring system adequate
  for lighting and other devices.
• Contains a heating system capable of sustaining a
  healthful temperature (of approximately 70
  degrees) for a displaced person, except in those
  areas where local climatic conditions do not
  require such a system.
• Is adequate in size with respect to the number of
  rooms and area of living space needed to
  accommodate the displaced person.
• Has proper ingress and egress
• Is properly connected to an appropriate water
  source and an appropriate sewage system.

122
Uniform Relocation Assistance and Real Property
Policies Act of 1970 and the Uniform Relocation
Act Amendments of 1987

• Replacement Housing Payments
• Owners who were in occupancy 180 days or more
  prior to the initiation of negotiations may be
  eligible for a purchase supplement up to 22,500
  or rental assistance payment up to 5,250.
• Tenants who were in occupancy for 90 days or more
  prior to initiation of negotiation man be
  eligible for a rental assistance payment up to
  5,250.
• Housing of Last Resort

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Engineering Regulation 1105-2-100
124
Engineering Regulation 1105-2-100

• Nonstructural measures shall receive equal
  consideration in the Planning process
• New uses of evacuated flood plain
• Recreation
• Ecosystem restoration
• Recreation cost may not exceed 50 of the total
  project costs
• Recreation benefits may exceed 50 of the
  benefits needed for project justification

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Engineering Regulation 1105-2-100

• New uses of evacuated flood plain (continued)
• Benefits from ecosystem restoration and
  recreation that are new uses of the evacuated
  flood plain are considered flood damage reduction
• Land costs applicable to ecosystem restoration
  should not exceed 25 of total project costs
• Recreation and ecosystem restoration, if
  considered incidental to the primary purpose of
  flood damage reduction, can be cost shared on the
  basis of flood damage reduction

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Engineering Regulation 1105-2-100

• Relocation/buyout is justified by
• Value of the new use of the evacuated flood plain
• Reduction in damage to public property
• Reduction in emergency costs
• Reduction in administrative costs of the NFIP
  and disaster relief
• Total flood damage reduced
• Spillover benefits
• Two or more structures are needed unless single
  property protection is part of a larger plan
  benefiting multiple owners
• 65/35 cost share

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U.S. Army Corps of Engineers National
Nonstructural Flood Proofing
Committee