HomeMy WebLinkAbout09-17-07 Meeting of Drainage and Flooding CommitteeDRAINAGE AND FLOODING COMMITTEE
MEETING AGENDA
NOTICE IS HEREBY GIVEN OF A MEETING OF THE DRAINAGE AND FLOODING
COMMITTEE OF THE CITY COUNCIL, OF THE CITY OF LA PORTE TO BE HELD
SEPTEMBER 17, 2007 IN THE COUNCIL CHAMBERS OF CITY HALL, 604 WEST
FAIRMONT PARKWAY, LA PORTE, TEXAS, BEGINNING AT 5:30 P.M. REGARDING
THE ITEMS OF BUSINESS ACCORDING TO THE AGENDA LISTED BELOW.
CALL TO ORDER
PETITIONS, REMONSTRANCES, COMMUNICATIONS, AND CITIZENS AND
TAXPAYERS WISHING TO ADDRESS THE DRAINAGE AND FLOODING
COMMITTEE
DISCUSS STRUCTURE OF DRAINAGE AND FLOODING COMMITTEE
4. APPOINT CHAIRMAN AND ALTERNATES OF THE DRAINAGE AND FLOODING
COMMITTEE FOR THE CITY OF LA PORTE
REVIEW RESOLUTION 99-31 OF THE "PUBLIC IMPROVEMENT CRITERIA
MANUAL ("PICM") CALLED FOR IN ORDINANCE 14444 OF THE CITY OF LA
PORTE (THE DEVELOPMENT ORDINANCE OF THE CITY OF LA PORTE),
RELATING TO DRAINAGE CRITERIA AND IMPROVEMENTS
6. REVIEW FILL DIRT POLICIES AND PROCEDURES FOR THE CITY OF LA
PORTE
7. DISCUSS INVOLVEMENT AND COORDINATION WITH LOCAL
GOVERNMENTAL ENTITIES REGARDING DRAINAGE AND FLOODING
ISSUES
8. COMMITTEE COMMENTS
ADJOURNMENT
THIS FACILITY HAS DISABILITY ACCOMMODATIONS AVAILABLE. REQUESTS FOR
ACCOMMODATIONS OR INTERPRETIVE SERVICES AT MEETINGS SHOULD BE MADE 48
HOURS PRIOR TO THIS MEETING. PLEASE CONTACT CITY SECRETARY'S OFFICE AT
281-471-5020 OR TDD LINE 281-471-5030 FOR FURTHER INFORMATION.
A possible quorum of City Council may be present and participate in discussions but will not take any
action.
Approved:
t5oka"-K- 6,N VAL"L)
Sharon Harris, TRMC
Assistant City Secretary
,L6-1
REQUEST FOR CITY COUNCIL AGENDA ITEM
Agenda Date Requested: September 27, 1999
Requested By: Doug Kneuppe4vv Department: Planning
Report XX R olution Ordinance
Exhibits: Resolution
Drainage Criteria Chapter
Summary & Recommendation
This item was previously discussed at the September 8, 1999 Workshop Meeting. As a
result of the workshop discussion, staff has made the following changes to the
document:
Included Section 5.5.2 Outlet Sizing. This describes the size of the outlet exiting
from a detention pond.
Modified Figure 1 to include accurate rainfall data from the Harris County area.
Modified Figure 3 to clearly depict watershed boundaries.
Modified Figure 4 to remove references to the HCFCD and City of Deer Park.
Action Required by Council
Consider approval of a Resolution adopting the Drainage Criteria Chapter of the Public
Improvement Criteria Manual.
Approved for City Council Agenda
Robert T. Herrera
City Manager
Date
RESOLUTION NO. ag_3,
A RESOLUTION ADOPTING A PORTION OF THE "PUBLIC IMPROVEMENT
CRITERIA MANUAL ("PICM") CALLED FOR IN ORDINANCE 1444 OF THE CITY
OF LA PORTE (THE DEVELOPMENT ORDINANCE OF THE CITY OF LA PORTE),
RELATING TO DRAINAGE CRITERIA AND IMPROVEMENTS; MAKING CERTAIN
FINDINGS RELATING TO THE SUBJECT; FINDING COMPLIANCE WITH THE
OPEN MEETINGS LAW; PROVIDING A SEVERABILITY CLAUSE; AND PROVIDING
AN EFFECTIVE DATE.
WHEREAS, the City Council has directed the qualified professionals of the City's
staff to prepare a. Public Improvement Criteria Manual, setting forth City Policy and
guidelines relating to the design and construction of certain Public Improvements within
the City of La Porte, by virtue of the passage of Ordinance 1444, otherwise known as
the Development Ordinance of the City of La Porte; and
WHEREAS, City Staff has developed a portion of said policy, relating to drainage
criteria and improvements; and
WHEREAS, the Planning Commission of the City of La Porte has reviewed said
policy (in the form attached hereto as Exhibit "A"), and has received public comment on
said policy at its meeting held on August 19, 1999, pursuant to due notice, and
WHEREAS, the Planning Commission recommends approval of said Policy, in
the form attached hereto as Exhibit "A";
NOW, THEREFORE, BE IT RESOLVED BY THE CITY COUNCIL OF THE CITY OF
LA PORTE, TEXAS:
Section 1. The facts and matters set forth in the preamble of this Resolution
are hereby found to be true and correct.
99-31
Section 2. The portion of the PICM relating to drainage criteria and
improvements, as set forth on Exhibit "A" attached hereto, is hereby adopted by the City
Council of the City of La Porte.
Section 3. The City Council officially finds, determines, recites and declares
that a sufficient written notice of the date, hour, place and subject of this meeting of the
City Council is posted at a place convenient to the public at the City Hall of the city for
the time required by law preceding this meeting, as required by the Chapter 551, Tx.
Gov't Code; and that this meeting has been open to the public as required by law at all
times during which this ordinance and the subject matter thereof has been discussed,
considered and formally acted upon. The City Council further ratifies, approves and
confirms such written notice and the contents and posting thereof.
Section 4. In the event any clause, phrase, provision, sentence, or part of this
Resolution or the application of the same to any person or circumstance shall for any
reason be adjudged invalid or held unconstitutional by a court of competent jurisdiction,
it shall not affect, impair, or invalidate this ordinance as a whole or any part or provision
hereof other than the part declared to be invalid or unconstitutional; and the City
Council of the City of La Porte, Texas, declares that it would have passed each and
every part of the same notwithstanding the omission of any such part thus declared to
be invalid or unconstitutional, whether there be one or more parts.
Section 5. This Resolution shall become effective after its passage and
approval.
99-31
PASSED, APPROVED, AND RESOLVED this�jLday of -5-p—p—t, 1999.
CITY OF LA PORTE
ATTEST:
c
4=rtha Gillett, City ecretary
APPROVED:
CHAPTER 5
STORM SEWER DESIGN CRITERIA
5.1 GENERAL PROVISIONS
Drainage Criteria for development within the City of La Porte, and where applicable within La Porte's
Extraterritorial Jurisdiction (E.T.J.) is dependent upon the size and type of development, the conditions
within the individual watershed, the conditions or design of the receiving stream, bayou, channel, roadside
swale, culvert, or roadway.
The basic objective of this policy is to minimize the threat of flooding to areas within the City and its E.T.J.
and to minimize the effect of continued development on individual watersheds.
1. The City believes that the best long-term means of accomplishing its objective is a continued
program of improvement and extension of the Harris County Flood Control District's system of
open channels. This statement recognizes the technical reality that an essential prerequisite to an
effective flood control program is a system of open channels capable of carrying storm runoff of
any type in Harris County to Galveston Bay without adversely impacting existing urban areas
adjacent to the channels.
2. The City recognizes that both District's and City's existing open channel system is, in many
instances, inadequate to accomplish the goal of eliminating existing flooding conditions for
existing levels of urban development, or for ultimate development in the watershed.
3. The City therefore recommends that where required, certain additional flood control facilities be
utilized to supplement the open channel system. Such flood control facilities shall be designed to
preclude flooding in areas that do not presently flood and not increase flood levels where flooding
now occurs. Specifically, the City supports the use of storm water detention to supplement the
open channel system until long-term channel improvements can be completed, or as permanent
facilities where additional open channel improvements are not feasible. The result will be that
new development will limit or restrict the impact downstream.
5.1.1 All the drainage plans and construction shall meet or exceed the requirements of the City of La
Porte, Harris County Flood Control, Harris County, TxDOT, or any other entities having
jurisdiction over a facility (i.e. roadway, channel, etc.).
5.1.2 Unless otherwise provided for in these policies, development shall follow the Harris County Flood
Control District Criteria Manual for the design of Flood Control and Drainage Facilities in Harris
County, Texas.
5.1.3 If application of the policies and criteria contained in this document conflict with the City's duties
under the Flood Hazard Prevention Ordinance, the regulations of the Flood Hazard Prevention
Ordinance shall apply.
5.1.4 Drainage structures shall be constructed in such locations and of such size and dimensions to
adequately serve the development and the contributing drainage area. In new developments, the
developer shall provide all the necessary easements and rights -of -way required for drainage
structures, including storm sewer and open or lined channels.
5.2 CONSTRUCTION PLAN REQUIREMENTS
5.2.1 A drainage map shall be included in the construction plans. The drainage area map shall include:
A. Drainage areas, including areas draining from off -site onto or adjoining the project
Stormwater Criteria Page 1 of 10
B. Design storm runott; based on the type of facility and storm frequency listed in Section
5.4.
C. 100 — year runoff
D. Route of overland flow including the overflow to a drainage channel or detention facility
E. Water surface profiles for the 25-year and/or 100-year storms in the outfall channel. All
available information will be considered when making this determination.
F. Flow per inlet
G. Maximum ponding elevation
5.2.2 Detailed drainage calculations shall be submitted with the construction plans.
5.2.3 A lot grading plan should demonstrate that the finished grading plan will drain to approved
collection and discharge points and that the overland flow of water from adjacent properties will
not be impacted
5.2.4 The hydraulic gradient for the design storm may be shown on the construction drawings.
Calculations for the elevation for the hydraulic gradient shall be provided with the design storm
drainage calculations. The hydraulic gradient must be below the gutter line for the design storm.
The tailwater elevations based on a 25-year frequency in the outfall channel shall be used for
calculations of the hydraulic gradient.
5.3 USE OF PREVIOUSLY DESIGNED AND INSTALLED INFRASTRUCTURE
Situations where previously installed infrastructure is in place but not yet utilized to its design
capacity will be considered on a case by case basis. The developers engineer shall after
consultation with the City, prepare a report that:
a. outline the original design criteria
b. evaluates the impact of the original design on the receiving stream, adjoining
properties and/or the 100 year Floodplain.
Based on the report, the City Engineer may allow full or partial use of the previously installed
infrastructure and may require it to be supplemented with detention or other facilities.
5.4 STORM FREQUENCY, RUNOFF AND DATUM
A. Storm Frequency
All drainage improvements shall be designed for the following storm frequencies.
Type of Facility
Road Side Ditches and Culverts 3 year
Storm Sewers 3 year
Ditches & Culverts Drainage 100 acres and more 25 year
Bridges 100 year
Creeks 100 year
Detention Facilities Refer to Section 5.5
B. Storm Runoff
Design flow of storm water runoff is to be calculated using the Rational Method.
The Rational Method is based on the direct relationship between rainfall and runoff, and
the method is expressed by the following equation:
Stormwater Criteria Page 2 of 10
Q = CIA, where
is the storm flow at a given point in cubic feet per second (c.£s).
is a coefficient of runoff (see Table 1).
is the average intensity of rainfall in inches per hour for a period equal to the
time of flow from the farthermost point of the drainage area to the point under
consideration. (See figure 1, I-D-F Curves and Figure 2, Determination of Time
of Concentration)
is the drainage area in acres
The size and shape of the watershed must be determined for each installation. The area
A each watershed may be determined through the use of planimetric-topographic maps of
the area, supplemented by field surveys in areas where topographic data has changed or
where the contour interval is insufficient to adequately determine the direction of flow.
The outline of the drainage area contributing to the system being designed and outline of
the sub -drainage area contributing to each inlet point shall be determined.
When calculating the peak flow rate of storm runoff, rainfall intensity will be determined
from the rainfall intensity, duration and frequency curves, shown in Figure 1. The storm
frequency used for this determination will be according to the facility to be designed as
listed in Section A.
Runoff Coefficients and Time of Concentration
Runoff coefficients, as shown in Table 1, shall be the minimum used, based on
total development under existing land zoning regulations. Where land uses
other than those listed in Table 1 are planned, a coefficient shall be developed
utilizing values comparable to those shown. Larger coefficients may be used if
considered appropriate to the project by the City Engineer.
The time of concentration is defined as the longest time, without unreasonable
delay, that will be required for a drop of water to flow from the upper limit of a
drainage area to the point of concentration. The time of concentration to any
point in a storm drainage system is a combination of the "inlet time" and the
time of flow in the drain. The inlet time is the time for water to flow over the
surface of the ground to the storm drain inlet. Because the area tributary to most
storm sewer inlets is relatively small, it is customary in practice to determine the
inlet time on the basis of experience under similar conditions. Inlet time
decreases as the slope and the imperviousness of the surface increases, and it
increases as the distance over which the water has to travel and retention by the
contact surfaces.
Time of concentration shall be computed from Figure 2m and in no case shall
the inlet time be more that the time shown in Table] .
Stonnwater Criteria Nee 3 of
Table 1
Zone
Zoning District Name
Runoff
Coefficient "C"
Maximum Inlet
Time in Minutes
R-1
Low Density Residential
0.50
15
R-2
Mid Density Residential
0.60
15
R-3
High Density Residential
0.80
10
MH
Manufactured Housing District
0.55
15
NC
Neighborhood Commercial District
0.80
10
GC
General Commercial District
0.85
10
BI
Business Industrial Park District
0.85
10
LI
Light Industrial
0.85
10
HI
Heavy Industrial
0.85
10
PUD
Planned Unit Development District
variable
10 to 15
Miscellaneous Land Uses
Land Use Runoff Coefficient "C"
Church 0.70 to 0.90
School 0.50 to 0.90
Park 0.30 to 0.70
C. Datum
All drainage plans shall be prepared based on United States Geodetic Survey datum, 1978
adjustment, consistent with National Flood Insurance Program, Flood Insurance Study for
the City of LaPorte.
5.5 REQUIRED DETENTION
Detention Basins — Unless otherwise provided for in this Section, Detention Basins will be
required for developments within the following watersheds.
Little Deer Creek — F212
• Upstream of Main Street
Little Cedar Bayou — F216
• Upstream of State Highway 146
Big Island Slough — B 106
• All segments
Spring Gully — B 109
• All segments
Willow Spring Bayou — B 112
• All segments
Taylor Bayou — A 104
• All segments
The listed watersheds are shown on Figure 3.
Stormwater Criteria Page 4 of 10
5.5.1 Design Standards for Detention Basins
Detention requirements for developments less than 50 acres shall be according to the following table. For
developed areas of 10 acres or less, the required volume equals the total development area times the
appropriate storage coefficient. For areas greater than 10 acres and less than 50 acres the volume is
determined by applying Harris County Flood Control District criteria for small watersheds.
Table 2
Developed Area
0 to 3 acres
3 to 10 acres
10 to 50 acres
Storage Coefficient
0.20 acre ft. / acre
0.45 acre ft. / acre
per HCFCD criteria
For developments larger than 50 acres, Harris county Flood Control District and the City Engineer shall
approve the detention facility criteria.
5.2.2 Outlet Sizing
The outlet structure shall be designed using the orifice equation as follows:
Q = CA x (2gh)/'
Where,
C=0.8
A = cross sectional area
g = 32.2 feet / sec^2
h = head differential
For head differential use 2' or the 100-year water surface in pond minus the 25-year
water surface in receiving channel, if available.
2. Minimum restrictor shall be 6" diameter.
5.5.3 Additional Standards for Detention Basins
The detention facility shall be designed for easy maintenance. For smaller developments the designer is
encouraged to use parking lots, underground piping, swales, green spaces, etc. to achieve the volume
required.
For larger developments every consideration shall be given to designing of the facility for multipurpose
use, such as playgrounds, miniparks, required green spaces, etc. to assure that maintenance will be
accomplished. The design shall include the following:
1. an earthen detention basin shall have minimum side slopes of 4:1 and a minimum bottom width
of ten feet;
2. the bottom of the detention basin shall have a minimum 0.50% cross slope to facilitate quick
drainage.
3. a v-shaped trickle channel a minimum of 5' wide, six-inch thick, reinforced concrete shall be
constructed through the detention basin at a longitudinal slope of 0.20% to accommodate low flow
and facilitate rapid drainage. For developments less than 3 acres, the trickle channel may be 2 feet
wide and 4" thick.
4. a minimum 12-foot wide maintenance berm shall be provided around the perimeter of the
detention facility.
5. ingress and egress for maintenance including a dedicated right-of-way if required, shall be
provided to the detention basin and clearly shown on the construction drawings or site plan
subdivision plat.
Stormwater Criteria Page 5 of 10
6. the detention basins, slopes, bottom, maintenance berm, and other associated right-of-way shall
be final graded with a minimum of 6" top soil the hydro -mulch or drill -seeded and watered to
facilitate full grass coverage.
7. parties responsible for maintenance of the detention facility must be shown on the plat or plans.
8. Pumped detention systems may be allowed with specific approval from the City Engineer.
5.5.4 Ownership and Maintenance of Facilities
The City will not accept maintenance of on site facilities that serve only one tract or development, unless it
is determined to have other public benefits, is recommended by staff and approved by the Planning and
Zoning Commission.
Harris County Flood Control District may, at their discretion, accept maintenance of facilities, provided
they are designed in accordance with the District's criteria manual. Requests for Harris County Flood
Control District to assume maintenance of any facility should be coordinated with the City prior to any
development approvals.
5.6 ADDITIONAL DESIGN REQUIREMENTS
5.6.1 Discharge Points
The developer shall terminate all drainage improvements at a discharge point approved by the City. The
developer shall design and construct such discharge point, or outlet, to prevent damage to or overflowing
into adjacent property. The City may require creek improvement, channel lining, energy dissipaters or
other improvements for such outlet to prevent erosion or increase the flow capacity.
Finished elevations of new pavement, parking areas, or other improvements shall be designed so that each
succeeding high point is lower when moving in a downstream direction. This ensures the 100-year
discharge has an unobstructed path to the discharge point whether discharging to a channel or detention
pond.
5.6.2 Public Streets as Drainage Facilities
1. Maximum depth of water to be allowed in local streets during design flow shall be at the top
crown, or top of curb, whichever is less.
2. Maximum spread of water in collector streets during design flow shall allow for one clear lane
of traffic (12 feet wide).
3. Maximum spread of water in arterial streets during design flow shall allow for two clear lanes
of traffic (24 feet wide).
5.6.3 Drainage Channels and Structures
1. The developer shall install an underground storm drain on curb and gutter streets beginning at
the point where calculated storm water runoff is of such quantity that it exceeds the height
specified above. The developer shall construct the storm drain system from the point to an
approved outlet.
2. For non -curb and gutter streets, the developer may use open channel (channel or ditch) methods
o dispose of storm water specified above. Such channels may be in dedicated draining easements
outside the standard street right-of-way upon City approval of the location and alignment of such
easements. Alternatively, the developer may widen the street right-of-way to accommodate an
open channel of greater capacity than the standard street/ditch section.
3. If the developer locates the channel in a widened street right-of-way, the City shall approve the
right-of-way width and channel configuration. the depth of flow in the channel shall not exceed
one (1) foot as measured from the ditch flowline to the point on the roadway established as the
high water level in this section.
Stormwater Criteria Page 6 of 10
4. The developer shall design and construct all channels to terminate at an approved outlet.
5.6.4 Habitable Structures
The developer shall provide adequate means for storm water run-off in excess of the "design storm"
capacity (i.e., 3, 10-year storm) to flow around habitable structures.
a.) The developer shall provide a grading/drainage plan which shows that all building sites can
provide a finished floor elevation:
(1) At least one foot(1') above the top of the curb using the highest point along the
portion of such curb fronting the building site, or
(2) At least eighteen inches (18") above the crown of the road elevation, using the highest
point along the portion of such road fronting the building site.
(3) At least on foot above the ground elevation along all sides of the building site.
b.) In addition to paragraph (a) above, the developer shall provide a grading/drainage plan which
meets or exceeds the provisions of Chapter 94, Code of Ordinances, Flood Hazard Reduction.
c.) The developer shall design and construct all streets to minimize any fill required to bring
building pads into compliance with this code.
d.) Alternate methods of building protection may be accepted by the City upon submittal of
detailed information, review and approval by the City Engineer.
5.6.5 Drainage System Criteria
If an underground drainage system is required, and a 60-inch or smaller pipe will handle the
design slow, pipe shall be used. If a 60-inch pipe is not adequate, the developer has the option to
use concrete pipe or natural and/or a lined drainage channel. If pipe is selected, the maximum
allowable velocity shall be 8fps in the pipe. Lining materials, if used, shall be approved by the
City.
5.6.6 Public storm sewers are defined as sewers and appurtenances that provide drainage for a public
right-of-way, or more than one private tract, and are located in public right-of-way or easement,
private storm sewers provide internal drainage for a reserve or other tract. Private storm or sewer
connections to public storm sewers shall occur at a manhole or at the back of an inlet as approved
by the City Engineer. All private storm sewers within the public right-of-way shall be constructed
in conformance with the Standards.
5.6.7 All construction shall conform with the City of La Porte Construction Details.
5.6.8 All storm sewers shall meet or exceed the requirements of the "Drainage Criteria Manual for
Harris County, Texas" and the requirements of the City of La Porte.
5.7 LOCATION OF STORM SEWER
5.7.1 Public storm sewers shall be located within a public street right-of-way or storm sewer easement,
dedicated to the public and adjoining a public street right-of-way. Storm sewers through side lot
drainage easements are highly discouraged. Limited use may be approved at the discretion of the
City Engineer. If approved, a minimum twenty -foot (20') wide easement is required (10' on each
lot).
5.7.2 Recommended alignment within a public street right-of-way.
A. Boulevard pavement section with median — along centerline of the right-of-way.
Stormwater Criteria Page 7 of 10
B. Undivided pavement section five feet (5') inside the right-ot-way. hor storm sewer
located in a public street right-of-way, a minimum of two -foot (2') shall be maintained
inside the right-of-way line to the outside edge of the storm sewer unless otherwise
accompanied by an adjacent easement.
C. Alternate locations for a storm sewer will be permitted by the City Engineer.
5.7.3 Recommend alignment within an exclusive storm sewer easement.
A. Storm sewers placed in easements shall conform to the requirements of Section 2.4.5
B. Storm sewers within easements shall be placed no closer than five feet (5') measured
from the outside edge of the pipe to the edge of an easement, except when adjoining
another easement or public right-of-way where the distance may be reduced to two feet
(2'). The storm sewer shall be placed in the center of the easement. When the storm
sewer easement adjoins a public right-of-way, the easement may be reduced to a
minimum of ten feet (10') and the storm sewer may be aligned close to the right-of-way
line, as long as required clearances are met, with specific approval of the City Engineer.
5.8 STORM SEWER MATERIALS
5.8.1 Storm sewer and culvert pipe shall be precast reinforced concrete pipe, unless specifically
approved by the City Engineer. Concrete pipe shall be manufactured in conformance with the
requirements of ASTM C 76, " Reinforced Concrete Culvert, Storm Drain, and Sewer Pipe,"
current revision. Reinforced concrete pipe shall be Class III or stronger. The design engineer
shall provide for increased pipe strength when conditions of the proposed installation exceed the
allowable load for Class III pipe. All concrete pipe constructed in water -bearing soil or forty-two
inched (42") in diameter or larger, shall have rubber gasket joints meeting the requirements of
ANSI/ASTM C 443, "Joints for Circular Concrete Sewer and Culvert pipe, Using Rubber
Gaskets", current revision. Concrete pipe with diameter of less than forty-two inches (42") may
be installed using pipe with tongue and groove type joint and Ram-nek, or approved equal, as a
joint filler. When specifically approved by the City Engineer, reinforced concrete arch and
elliptical pipe conforming to ASTM C506 and ASTM C507, respectively, current revision, may be
installed in lieu of circular pipe. Reinforced concrete box culverts shall meet the minimum
requirements of ASTM C789, "Precast Reinforced Concrete Box Sections for Culverts, Storm
Drains, and Sewers", current revision. pipe joints for arch and elliptical pipe and box culverts
shall be sealed using Ram-nek or approved equal.
5.8.2 Storm sewer outfalls into open channels shall be constructed using corrugated steel pipe.
Corrugated steel pipe shall be manufactured in conformance with the requirements of
AASHTO Designation M-36-82, current revision. Pipe material shall be Aluminized Steel Type
2, meeting the requirements of AASHTO Designation M-27-79I, current revision, or Pre -coated
Galvanized Steel, AASHTO M-246, 10 mil coating on both sides. All pipe shall have a full
double coating, Type A, in accordance with AASHTO Designation M-190, current revision. Pipe
joints and fittings shall meet the minimum requirements of these specifications and shall have an
O-ring gasket seal meeting the requirements of AASHTO C-361, current revision. (See City of La
Porte Construction Details).
5.8.3 Storm sewer outfalls shall have a slope protection to prevent erosion. Slope protection may be
constructed of slope paving or rip rap. Slope paving shall be four -inch (4") five (5) sack concrete
with six-inch by six-inch (6" x 6") welded wire mesh (W14 x W14) or three eighths inch (3/8")
steel rebar on twenty -four -inch (24") centers, each way. Rip rap shall be a minimum of six-inch
(6") broken concrete rubble with no exposed steel or well-rounded stone and shall be a minimum
of eighteen inched (18") thick. Slope protection texturing shall be required where public access
likely. Refer to the Construction Details for minimum dimensions.
Stormwater Criteria Page 8 of 10
5.9 ADDITIONAL REQUIREMENTS
5.9.1 Minimum depth of storm sewer (measured to the top of pipe) shall be twenty-four (24") below the
top of curb or finished grade, whichever is lower. Minimum size storm sewer for main land and
inlet lead shall be eighteen inch (18").
5.9.2 Storm sewers shall be bedded using cement stabilized sand as shown in the City of La Porte
Construction Details.
5.9.3 Pipe requirements.
A. Reinforced concrete pipe installed at a depth greater that thirty feet (30') shall be designed by the
engineer for the specific installation and approved by the City Engineer, Reinforced concrete pipe
shall be designed in accordance with the American Concrete Pipe Association, "Concrete Pipe
Design Manual", Maximum cover on the pipe shall be measured from the top of pipe to the
ultimate finished grade or natural ground, whichever is greater.
B. Corrugated steel pipe shall have a minimum thickness as follows:
PIPE SIZE MINIMUM THICKNESS
(Inches) Corrugations (Inches
242-2/3" X 1/2" 0.052
30- 482-2/3" X 1/21 0.064
54- 723't X 1" or 511 X 1" 0.064
78- 102311 X 1" or 5" X 1" 0.079
Bedding for corrugated steel pipe shall be cement -stabilized sand. Corrugated steel pipe less than
or equal to fifty-four inches (54") in diameter and less than thirty feet (30') deep shall have the
minimum thickness given above.
C. Design storm flow in a street shall not exceed the capacity of the street, for the water surface equal
to the top or curb and shall not exceed the inlet capacity. Design storm flow shall meet Harris
County criteria.
D. All bridges must be a minimum of eighteen inches (18") above the 100-year water surface
elevation or in accordance with the Federal Emergency Management Agency (FEMA)
regulations , latest revisions, or HCFCD requirements, whichever is greater.
5.9.4 Storm sewers less that forty-two inches (42") in diameter shall be constructed on a straight
horizontal and vertical alignment between manholes. Storm sewers greater than or equal to forty-
two inches (42") in diameter may be laid along a curve using manufactured bends of less than or
equal to 11'/4'.
10 APPEARANCES
10.1 Manholes
A. Manholes shall be placed at all changes in alignment, grade and size of the storm sewers;
at the intersection of two or more storm sewers; at all inlet leads; and at the end of all
storm sewers.
B. Maximum spacing between manholes shall be six hundred feet (600')
C. Manhole covers shall be cast iron, traffic bearing, type ring and cover with the words
"storm sewer" cast into the cover.
Stormwater Criteria Page 9 of 10
5.10.2 Inlets
A. Curb inlets shall be spaced and sized to intercept the calculated runoff for the design
storm. The water surface elevation at the inlet shall be less than or equal to the top of
curb for the design storm flow.
B. Maximum travel distance of water in the street to a curb inlet shall be three hundred feet
(300') on a major thoroughfare and in a commercial area. The maximum travel distance
of water in the street permitted in a single-family residential area shall be four hundred
feet (400').
C. No Valley Gutter without prior approval.
D. Curb inlets should be on the intersecting side street at intersections with a major
thoroughfare. The City Engineer shall specifically approve locations at intersections.
E. Grated inlets will not be permitted in an open ditch.
F. Backslope swale interceptors shall be placed in accordance with the requirements of
Harris County.
G. Curb inlets shall have solid inlet lids. Grate or Curb and Grate inlets shall not be allowed
for residential subdivisions. Curb inlets shall be recessed, unless otherwise directed by
the City Engineer.
H. Backfill around inlets and to top of first stage inlet with cement stabilized sand.
Stormwater Criteria Page 10 of 10
City of La Porte
s
Intensity vs. Time of Concentration vs. Rainfall Frequency
(IDF Curves)
Source: Hydro 35/TP40
���l���iii
■ii>•■�l���iiii
Intensity,i= b FIGURE
(d +TC)e
Rainfall Frequency
b
d
e
2-year
75.01
16.2
0.8315
3-year
77.27
17.1
0.8075
5-year
84.14
17.8
0.7881
10-year
93.53
18.9
0.7742
25-year
115.9
21.2
0.7808
100-year
125.4
21.8
0.7500
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FILL DIRT/. PROPERTY ELEVATION�CHANGE
15
PERrMITAPPLICATION`
Submittal Date:
Owner's Name: Phone:
Mailing Address: Alt. Phone:
Fax:
Project Address:
Legal Description:
Contractor:
Address:
Street
Describe Work:
Acreage:
city
State Zip
*PLEArSE,NOTE: -The Planning Department reserves the right to inspect ;the placement of soil
and recommend -changes as necessary to alleviate possible flooding of -neighboring properties.
**THIS AREA FOR CITY STAFF USE ONLY **
❑ SKETCH REVIEWED BY / DATE:
❑ SKETCH APPROVED BY / DATE:
❑ PERMIT APPROVED BY / DATE:
FLOOD ZONE: BFE:
MAXIMUM NO. OF TRUCKLOADS:
SPECIAL CONDITIONS:
PERMIT NUMBER ISSUED:
c•\rt)n,,,mxC,rAA1n ADn PnOkAMM—o Fill Nrt Darmit Annliratinn.tiwv
DATE:
FILL DIRT PERMITS
Information on Fill Dirt Policies
and Procedures
1. Fill dirt permit application can be obtained at inspections desk. For questions on Fill Dirt
permitting contact the Planning Department (281-471-5020) and schedule appointment with
City Engineer or his designated assistant.
2. The Texas State Water Code Section 11.086 reads as follows:
(a) No person may divert or impound the natural flow of surface waters in this state,
or permit a diversion or impounding by him to continue, in a manner that
damages the property of another by the overflow of the water diverted or
impounded.
(b) A person whose property is injured by an overflow of water caused by an
unlawful diversion or impounding has remedies at law and in equity and may
recover damages occasioned by the overflow.
The homeowner is solely responsible for complying and adhering to the above state statute.
The homeowner may be held liable for failing to comply with Section 11.086.
3. Property owner should find their lots size and load estimate amount on the attached matrix
and comply with all bullets in that column.
4. Haul routes for the delivery dump trucks should be held to those routes listed in Section 70-
231 of the Code of Ordinances. Repetitive trips needed off of these designated routes could
result in the assessment of a Trucking/Hauling surcharge. Any damage to the various streets
and thoroughfares of the City of La Porte shall fall under Section 70-259. of the Code of
Ordinances which reads as follows:
Any person moving or causing to be moved a load which, together with the weight of the
vehicle, exceeds the limit as set out in section 70-256, shall be liable to the city for any
damage done by any such excessively loaded vehicle to the streets, bridges or culverts in the
city and the acceptance of either of the permits provided for in this division shall be
conclusive evidence that the person to whom such permit is issued agrees to make good and
pay all such damages upon demand thereof made by the city.
5. In the cases of fill projects between 6-49 loads, the standard swale to be used shall conform
to at least the minimum dimensions shown on the example.
6. The City of LaPorte is NOT responsible for providing fill dirt.
CityhaU1'(S)/ CPShare/Fill Dirt PermittineFIL.L DIRT POLICIES2.DOC Revision January 2006
7. No fill may be placed in the floodplain without compensating excavation. The City of La
Porte reserves the right to require that any fill placed in the floodplain be accompanied by a
sealed compaction test stating that the fill has been compacted to 95% Standard Proctor or
better.
S. After the property owner has demonstrated sufficient compliance with the intent of these
policies and procedures, a permit may be issued through the Inspection Division.
9. Any deposited fill dirt that is liable to hold stagnant water is a violation of section 34-128 of
the city's code of ordinances. Section 34-128 reads as follows:
The following specific acts and conditions are declared to constitute a public nuisance and
are hereby prohibited and made unlawful:
Any lot or parcel of real estate situated within the city which has the surface thereof filled or
partly filled with holes, or is in such condition that the lot or parcel holds or is liable to hold
stagnant water therein, or, from any other cause, is in such condition as to be liable to cause
disease, or produce, harbor, or spread disease germs of any nature or tend to render the
surrounding atmosphere unhealthy, unwholesome or obnoxious.
10. Upon receipt of a fill dirt permit, the permit holder must place the green placard (provided
with permit) at a prominent location at or near the entrance of the site where fill dirt
operations will occur.
11. Fill dirt permit fees shall be $25.00 for 6 to 49 loads of permitted fill dirt, and $2.00/load for
each additional load. The first 5 loads of permitted fill dirt are free.
1 load 12 cubic yards.
CityhaIll'(S)/ CPShare/Fill Dirt Permitting/FILL DIRT POLICIES2-DOC Revision January 2006
EXHIBIT A
TO
ORDINANCE 1444-A
Small Lots
Large Lots
PERMIT REQUIREMENTS AND CONDITIONS
All Lots
less than 1 acre
1 acre or more
1-5 Loads
6-49 Loads
50 and more Loads
6-49 Loads
50 and more Loads
1
Permit Required
2
Permit Fee Assessed
3
180 Day Permit for Project Completion
4
Spreading of Delivered Fill Must Begin within 30 Days
For Open Ditch Roadways Maximum Fill to be 6 inches below
5
top of adjacent crown of road
Recommended overland slope for lot grading to be 0.2%-0.75%
6
For Curb & Gutter Streets, Grade Fill at 0.2%-0.75% toward
GA
street
"
For Lots Abutting an Alley Way, Match the Grade of the Alley
"
7
and Grade to Drain Toward Street
Grading & Drainage Plan submitted signed and sealed by
8
Professional Engineer licensed in the State of Texas
Storm Water Pollution Prevention Plan and Revegetation Plan
SA
submitted
Demonstration that Watershed is Not Being Adversely
8B
Impacted
8C
Grade of swales to be customed/en ineered for each site
9
Sketch, Survey or Site Plan Showing Proposed Fill Placement
"
"See Item 8
'See Item 8
and Location of Proposed Drainage drawn to scale
10
Silt Prevention and Revegetation Ian required
"See Notes 3&4
'See Item 8A
'See Notes 3&4
'See Item BA
11
1 ft To of Bank Swale Offset from Property Line
"
12
5 ft To of Bank Swale Offset from Property Line
13
No Fill Unloaded within 15 ft of Property Line
14
No Fill Unloaded within 5 ft of Property Line
Address for Site Required And Fill Must be Delivered to this
15
address
Any deviation from these permit requirements Shall be Reviewed
16
and Approved By the City
' = Required Information, Activity or Regulation
Note:
1 No dump trucks larger than 12 CY dump trucks shall be allowed for use in deliver to addresses off truck routes.
2 Only one Fill Dirt Permit will be issued for any one property or address over a 180 day span.
3 Silt prevention plan shall at a minimum consist of silt fencing or block sodding rows of sod 2' wide along the leading edge of the filled area.
4 Revegetation shall consist of seeding, sprigging, sodding; turf establishment (or combination thereof) that produces an effective vegetative cover of 75% within 90
days.
EXHIBIT "B"
MAX HEIGHT OF FILL
6" BELOW CROWN OF ROAD
PROPERTY
LINE
��/1� MATCH
FILL 3' Ili. ADJACENT
GRADE
OFFSET
6"� MII N
I1
NOTE:
MIN. SLOPE 0.2%
LO(
O
MA'
NOTE: CROWNED AT SECTION A -A
SECTION A -A
LOT GRADING
NI IV IV
A -A
'VARY
I
A
A
FILL
AREA
ROADWAY
LARGE LOT GRADING i
MINIMUM SWALE
PROPERTY
LINE
pR
MATCN AuNe
PROPERTY
�
3
A
ROAD G00o ���
.LINE
�
ROAD
A
MATCH ALLEY pR
PROPERTY LINE
J
.J.
GRADE Tp 5TR££T
L�
OR ALLEY
OR ALL
A
I
J
J
SMALL LOT / SMALL PROJECT
%
IN CURB & GUTTER AREAS
SMALL LOT/SMALL PROJECT
Q
IN OPEN CHANNEL AREAS
W
A
CITY OF LA PORTE of
FILL PERMIT D ETA I LS
604 W. Fairmont Parkway
Planing Dept./Engineering Div. p
W
La Porte, Texas 77571
re
281-471-5020 ��_•�
i
DATE: JULY 2003 1 DRAWN BY: JR I CHECKED BY: BS I APPROVED BY: RAC I NOT TO SCALE I DWG NO: 0703FDOI
ORIGINAL
ORDINANCE NO. 1444-A
AN ORDINANCE AMENDING SECTION 2.19 DEVELOPMENT, SECTION 4.08
DEVELOPMENT SITE PLANS: GENERAL AND SECTION 11.02, DRAINAGE AND
STORM SEWER, OF CITY OF LA PORTE ORDINANCE NO. 1444 REGULATING THE
PLATTING OR REPLATTING OF LAND INTO SUBDIVISIONS IN THE CITY OF LA
PORTE AND WITHIN THE EXTRATERRITORIAL JURISDICTION OF THE CITY OF LA
PORTE; PROVIDING THAT ANY PERSON VIOLATING THE TERMS OF THIS
ORDINANCE SHALL BE DEEMED GUILTY OF A MISDEMEANOR AND SHALL UPON
CONVICTION BE FINED A SUM OF NOT MORE THAN TWO THOUSAND DOLLARS
($2,000.00) FOR EACH VIOLATION; FINDING COMPLIANCE WITH THE OPEN
MEETINGS LAW; PROVIDING A SAVINGS CLAUSE AND A SEVERABILITY CLAUSE;
AND PROVIDING AN EFFECTIVE DATE HEREOF.
BE IT ORDAINED BY THE CITY COUNCIL OF
THE CITY OF LA PORTE:
Section 1. The City Council of the City of La Porte hereby finds, determines and
declares that all prerequisites of law have been satisfied, and hereby determines and
declares that the amendments to Section 2.19, Development, Section 4.08 Development
Site Plans: General, and Section 11.02, Drainage And Storm Sewer, of City of La Porte
Ordinance No. 1444, are desirable and in furtherance of the goals and objectives stated
in the City of La Porte's Comprehensive Plan.
Section 2. Section 2.19, DEVELOPMENT, of City of La Porte Ordinance 1444,
is hereby amended to read as follows, to -wit:
"2.19 DEVELOPMENT: The process of converting land within the City's
jurisdiction from its natural state, or altering the elevation of property,
or converting its existing usage to residential, commercial, or
industrial uses. This definition encompasses any and all physical
changes to the land not regulated through the City Building Code
ORDINANCE NO. 1444- •
Paget ORIGINAL
inherent in such conversions. The term development includes
subdivisions as defined herein."
Section 3. Section 4.08 DEVELOPMENT SITE PLANS: GENERAL, of City of
La Porte Ordinance 1444, is hereby amended to read as follows, to -wit:
°4.08 DEVELOPMENT SITE PLANS: GENERAL
The following sections of this Ordinance outline procedures for
preparing and obtaining approval for developments not defined
herein as subdivisions. Except as noted in Section 4.08 (A) below, it
shall be a violation of this Ordinance for any person to develop
property within the City of La Porte without first:
a. Filing a Development Site Plan and required documentation for
approval.
b. Having said Development Site Plan approved according to the
procedures set forth herein; and
c. Obtaining a Development Authorization.
A. DEVELOPMENT SITE PLANS: EXCEPTIONS TO FILING
REQUIREMENTS
No Development Site Plan filing shall be required as provided for
herein in the case of a development that is solely and strictly a
ORDINANCE NO. 1444- A• NA
Pa e3�L 9
Subdivision, as that term is defined herein, and the requirements
of Section 4.04 of this Ordinance have been satisfied for such
Subdivision.
3:
B. MAJOR AND MINOR DEVELOPMENT SITE PLANS:
REQUIREMENTS AND CONTENTS
(SEE APPENDIX E)
For both Major and Minor Developments, the Development Site
Plan is drawn accurately to scale with exact dimensions. When
accompanied by all other required documentation, Development
Site Plans contain sufficient detail for evaluation of the proposed
development. Complete instructions for preparing Development
Site Plans are contained on Appendix E."
Section 4. Section 11.02, Drainage and Storm Sewers, of City of La Porte
Ordinance No. 1444 is hereby amended by adding language pertaining to the alteration
of the elevation of property. Section 11.02, Drainage and Storm Sewers, shall hereafter
read as indicated below:
ORDINANCE NO. 1444-A
Page 4
"11.02 DRAINAGE AND STORM SEWER
ORIGINAL
Adequate drainage shall be provided as to reduce the community's
exposure to flood hazards with respect to adjacent, upstream and
downstream developments. (See also Chapter 94. Floods, of the
Code of Ordinances of the City of La Porte for additional
requirements.) Adequate drainage shall be provided within the limits
of the subdivision and/or development. The protection of adjoining
property shall be accounted for in the design of the drainage system,
and shall be subject to the approval of the Director of Planning or his
designated representatives.
Any person or persons that alter or change the elevation of pro2eer�t r
shall be responsible for applying for and obtaining prior to said
change or alteration of the elevation of property a development
authorization from the City Planning Department Any change or
alteration in the elevation of Qrope& requires submission of a Site
Plan prior to the change or alteration of property which said Site
Plan shall delineate the proposed change or elevation of property
Said certified site plan shall be subiect to approval by the City
Engineer."
Section 5. Any person, as defined in Section 1.02(27) Texas Penal Code, who
shall violate any provision of this Ordinance, shall be deemed guilty of a misdemeanor
and upon conviction shall be punished by a fine not to exceed Two Thousand Dollars
ORDINANCE NO. 1444- ®,
Pages
($2,000.00). Each day a violation of this ordinance shall continue shall constitute a
separate violation.
Section 6. All rights or remedies of the City of La Porte, Texas, are expressly
saved as to any and all violations of any Zoning Ordinance or amendments thereto, of
said City of La Porte, that have accrued at the time of the effective date of this Ordinance;
and as to such accrued violation, the court shall have all the powers that existed prior to
the effective date of this Ordinance; and as to such accrued violation, the court shall have
all the powers that existed prior to the effective date of this Ordinance; and that all
existing violations of previous zoning ordinances which would otherwise become
non -conforming uses under this Ordinance but shall be considered as violations of this
Ordinance in the same manner that they were violations of prior zoning ordinances of
said City of La Porte.
Section 7. If any section, sentence, phrase, clause, or any part of any section,
sentence, phrase, or clause, of this Ordinance shall, for any reason, be held invalid, such
invalidity shall not affect the remaining portions of this Ordinance, it is hereby declared to
be the intention of the City of Council to have passed each section, sentence, phrase, or
clause, or part thereof, irrespective of the fact that any other section, sentence, phrase, or
clause, or part thereof, may be declared invalid.
Section 8. The City Council officially finds, determines, recites and declares that
a sufficient written notice of the date, hour, place and subject of this meeting of the City
Council was posted at a place convenient to the public at the City Hall of the city for the
time required by law preceding this meeting, as required by the Open Meetings Law,
Chapter 551, Texas Government Code; and that this meeting has been open to the public
ORDINANCE NO. 1444
Page 6 ,*� ; :, 1
as required by law at all times during which this ordinance and the subject matter thereof
has been discussed, considered and formally acted upon. The City Council further
ratifies, approves and confirms such written notice and the contents and posting thereof.
Section 9. This Ordinance shall become effective fourteen (14) days after its
passage and approval, however, implementation of this ordinance will not take place until
180 days after its passage. The City Secretary shall give notice to the passage of the
notice by causing the caption to be published in the official newspaper of the City of La
Porte at least twice within ten (10) days after the passage of the Ordinance.
PASSED AND APPROVED THIS THE 23 DAY OF March , 1998.
CITY OF LA PORTE
ATTESTATION.
B.
ARTHA GILLETT,
City Secretary
ADoQnvcn•
MEETING HANDOUTS
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8/15/2007
21:01:12
1.39
8/15/2007
21:01:14
1.39
8/15/2007
21:02:13
1.61
8/15/2007
22:10:24
1.85
8/16/2007
01:03:53
1.85
8/16/2007
01:03:55
1.85
8/16/2007
01:08:54
1.65
8/16/2007
01:42:00
1.45
8/16/2007
01:42:02
1.45
8/16/2007
01:56:02
1.65
8/16/2007
01:56:04
1.65
8/16/2007
02:05:04
1.45
8/16/2007
02:27:07
1.65
8/16/2007
02:30:08
1.45
8/16/2007
02:46:11
1.67
8/16/2007
02:58:13
1.47
8/16/2007
03:41:20
1.67
8/16/2007
04:02:23
1.47
8/16/2007
04:38:29
1.69
8/16/2007
04:43:30
1.47
8/16/2007
04:49:32
1.67
8/16/2007
04:51:32
1.47
8/16/2007
06:21:47
1.89
8/16/2007
06:23:47
1.67
8/16/2007
06:38:50
1.89
8/16/2007
06:55:53
1.69
8/16/2007
07:00:54
1.89
8/16/2007
07:09:55
1.69
8/16/2007
07:11:57
1.89
8/16/2007
08:32:09
2.15
8/16/2007
08:48:12
1.95
8/16/2007
08:58:13
1.97
8/16/2007
09:10:15
2.17
8/16/2007
09:42:21
2.19
8/16/2007
10:45:33
2.01
8/16/2007
11:18:37
2.21
8/16/2007
11:26:39
2.11
8/16/2007
11:30:39
2.33
8/16/2007
11:58:44
2.11
8/16/2007
12:15:57
2.51
8/16/2007
12:21:47
2.95
8/16/2007
12:25:03
3.27
8/16/2007
12:26:48
3.47
8/16/2007
12:26:50
3.47
8/16/2007
12:28:49
3.73
8/16/2007
12:30:49
3.97
8/16/2007
12:32:50
4.17
8/16/2007
12:37:59
4.65
8/16/2007
12:40:07
4.89
8/16/2007
12:41:51
5.11
8/16/2007
12:43:52
5.35
8/16/2007
12:45:52
5.57
8/16/2007
12:45:54
5.57
8/16/2007
12:48:09
5.83
8/16/2007
12:49:53
6.03
8/16/2007
12:51:53
6.25
8/16/2007
12:53:53
6.49
8/16/2007
12:56: 01
6.79
8/16/2007
12:58:11
7.11
8/16/2007
12:58:13
7.11
8/16/2007
13:00:00
7.39
8/16/2007
13:01:55
7.69
8/16/2007
13:03:56
7.99
8/16/2007
13:05:56
8.27
8/16/2007
13:09:57
8.83
8/16/2007
13:14:13
9.43
8/16/2007
13:15:58
9.69
8/16/2007
13:18:06
9.99
8/16/2007
13:20:07
10.27
8/16/2007
13: 26:12
11.05
8/16/2007
13: 30: 00
11.45
8/16/2007
13:33:01
11.69
8/16/2007
13:36: 01
11.89
8/ 1612007
13: 46: 05
12.31
8/16/2007
13:52:20
12.53
8/16/2007
14:01:06
12.73
8/16/2007
15:36:22
12.73
8/16/2007
15: 58:25
12.53
8/16/2007
16:47:34
11.73
8/16/2007
16:47:37
11.73
8/16/2007
17: 08: 37
11.33
8/16/2007
17:26:40
10.93
8/16/2007
17: 34:41
10.73
8/16/2007
17:41:46
10.51
8/16/2007
17:47:43
10.31
8/16/2007
17: 53:44
10.11
8/16/2007
18:05:46
9.69
8/16/2007
18:11:48
9.49
8/16/2007
18:11:51
9.49
8/16/2007
18:17:49
9.29
8/16/2007
18:24:50
9.09
8/16/2007
18:24:53
9.09
8/16/2007
18:31:50
8.89
8/16/2007
18:37:53
8.69
8/16/2007
18:45:53
8.49
8/16/2007
18:52:55
8.29
8/16/2007
19:00:56
8.07
8/16/2007
19:09:58
7.87
8/16/2007
19:18:59
7.67
8/16/2007
19:28:00
7.47
8/16/2007
19:28:02
7.47
8/16/2007
19:38:02
7.27
8/16/2007
19:50:04
7.07
Yr4ga �'
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�.
A Guide
Dfor Elected
Officials
OBITMS
A joint project of the Association of State Floodplain Managers, Inc. and
the Federal Interagency Floodplain Management Task Force, 1996
Prepared by James M. Wright, The Floodplain Management Group, Knoxville, Tennessee
and Jacquelyn L. Monday, Consultant, Lakewood, Colorado
Additional copies available from: ASFPM Executive Office, 4233 West Beltline Highway,
Madison, Wisconsin 53711, telephone (608) 274-0123.
"This is an outstanding document — should be in every elected official's library."
Dr. W. J. LoPiano, former Mayor, Tempe, Arizona
"I could not set this document aside upon receipt. [It] is a very informative and
useful guide. And will be of much value to elected officials such as myself."
Frank E. Knittle, Trustee, South Holland, Illinois
"This guide is an outstanding resource that should be shared with all the key players
in your community." Christopher C. Johnson, Mayor, Agawam, Massachusetts
"This is a guide to help officials take action now and try to ward off problems
from future flooding. After reading this document I am recommending that we as a
city implement some of the actions that have not been taken for our community"
Phillis Roberts, Councilwoman, Arnold, Missouri
A Guide
[)for Elected
Officials
OB11MS
A joint project of the Association of State Floodplain Managers, Inc. and
the Federal Interagency Floodplain Management Task Force, 1996
Prepared by James M. Wright, The Floodplain Management Group, Knoxville, Tennessee
and Jacquelyn L. Monday, Consultant, Lakewood, Colorado
Additional copies available from: ASFPM Executive Office, 4233 West Beltline Highway,
Madison, Wisconsin 53711, telephone (608) 274-0123.
PREFACE It was 3 a.m. The newly elected city commissioner, in office only 19 days, was jarred from
fitful sleep by the loud ringing of his bedside phone.
"Commissioner! Through phone static, he recognized the voice of the mayor. "I need you to come
to the emergency operations center right away. I'll send a truck to get you. It's flooding."
"No!" said the commissioner. "Where?"
"Everywhere."
Thus began Tulsa's worst natural disaster, our 1984 flood. City leaders huddled in the Emergency
Operations Center throughout the nightmare night, shell-shocked by volley after volley of horrifying
reports of destruction all across town. They mustered all available forces to battle the flood. There were
miraculous victories, such as in Holiday Mobile Home Park, where a life flight helicopter pilot braved
the storm to rescue 40 people; they were plucked from their roofs, one by one, by the outstretched
hand of the chopper nurse. Overall, our forces were puny by comparison to the overwhelming power
of the water reclaiming its floodplains. Before dawn, as much as 15 inches of rain had fallen. Fourteen
Tulsans had lost their lives in flashing waves of water. Another 288 were hurt. Nearly 7,000 homes and
businesses were ruined, and another 7,000 cars and trucks — including city fire trucks, police cars, and
ambulances — were destroyed. Damage was $183 million.
In the darkest hours of that terrible night, the commissioner and our new young mayor vowed to
do whatever they could — and the political cost be damned — to prevent Tulsa from suffering such a
disastrous flood again. That commitment produced Tulsa's comprehensive stormwater management
program — a program born of great loss, hard lessons, and tremendous political courage. Ann Patton,
Community Affairs Manager, Tulsa, Oklahoma
This document was prepared to help you, as an elected official, plan and take action to prepare your
community for floods that will happen, if not during your term of office, then later. It is hoped that, by
taking these measures, you will avoid facing what Tulsa, Oklahoma, experienced.
AocvoWLEDGEMENTS This guidebook is the result of a common interest and cooperative arrange-
ment between the Association of State Floodplain Managers and the Federal Interagency Floodplain
Management Task Force, along with considerable assistance from two advisory committees and a
selected group of elected officials. The Association arranged for preparation of this report, which
would not have been possible without funding and other support from the Task Force.
An advisory committee comprising mainly local officials was formed by the Association. The Task
Force also formed a working committee for this project. These committees reviewed outlines and drafts
of the guidebook and provided important and helpful guidance and advice in arriving at the format
and content of this document.
MEMBERS OF THE ASSOCIATION COMMITTEE WERE:
Beverly Anderson, City of Darlington, Wisconsin
Dan Bunting, Pikes Peak Regional Building Department, Colorado Springs, Colorado
Dr. Mow-Soung Cheng, Prince Georges County, Maryland
Kevin Coulton, Consultant, Portland, Oregon
Windell Curole, South LaFourche Levee District, Galliano, Louisiana
Janie Douglass, Consultant, Louisville, Kentucky
Peggy Glassford, Village of Flossmoor, Illinois
Mike Houck, Consultant, Portland, Oregon
Christopher C. Johnson, Town of Agawam, Massachusetts
David Johnson, Flood Control District of Maricopa County, Arizona
John LaBrune, Union County, South Dakota
Sky Miller, Snohomish County, Washington
Paul Osman, Illinois Department of Natural Resources, Springfield, Illinois
Ann Patton, City of Tulsa, Oklahoma
Don Porter, Consultant, Waverly, Tennessee
Phillis Roberts, City of Arnold, Missouri
MEMBERS OF THE TASK FORCE COMMITTEE WERE:
Curt Barrett, National Weather Service
Jack Frost, Natural Resources Conservation Service
John McShane, Federal Emergency Management Agency
Jeanne Melanson, Natural Resources Conservation Service
Jerry Peterson, U.S. Army Corps of Engineers
Robert Plott, U.S. Army Corps of Engineers
Walter Prybyla, Department of Housing and Urban Development
Charlie Stockman, National Park Service
Martin Topper, Environmental Protection Agency
Jori Wesley, Environmental Protection Agency
IN ADDITION, A SELECTED GROUP OF ELECTED OFFICIALS AGREED TO
REVIEW THE FINAL DRAFT OF THE REPORT AND TO PROVIDE COMMENTS
ON ITS USEFULNESS FOR THEIR FELLOW OFFICIALS. THEY WERE:
David Evans, City of Searcy, Arkansas
Ed Harris, Harlan County, Kentucky
Ruth Joseph, City of Waterville, Maine
Frank Knittle, Village of South Holland, Illinois
William LoPiano, City of Tempe, Arizona
Gussie McRobert, City of Gresham, Oregon
Vincent Melvin, LaFourche Parish, Louisiana
Bob Schnur, St. Charles County, Missouri
The potential success of this guidebook is largely attributable to the efforts and contributions of
the above individuals. The photographs used in this guidebook came from the authors' files and the
graphic design was done by Inge Fox -Jones Design.
TABLE OF CONTENTS
3 PREFACE
% HOW FLOODS CAN AFFECT YOU
Introduction
Floods and Floodplains in Your Community
Your Role as an Elected Official
10 WHAT You CAN Do BEFORE A FLOOD
Understand Your Flood Problem
Understand Your Floodplain
Discover What Your Community Has Done
Coordinate with other Activities and Programs
Build Support by Promoting Floodplain Management
Carry Out Your Program
SUCCESS STORIES
Success Stories 1 Introduction to Success Stories
2 Flooded with Pride — Mitigation for Revitalization
5 Nature Bats Last: Tulsa's Flood Story
8 Riding a "Wave"of Cooperation
10 Seven Communities Take A Watershed Approach
21 SITUATIONS YOU WILL FACE AFTER A FLOOD
Emergency Response
Mitigation
25 RESOURCES YOU CAN USE TO COPE
WITH FLOODING
Local Resources
Program Management
Outside Resources
Using the Experiences of Others
30 ANNOTATED BIBLIOGRAPHY
31 APPENDIX A: OUTSIDE SOURCES OF ASSISTANCE
36 APPENDIX B: MEASURES THAT CAN BE EMPLOYED
AT THE LOCAL LEVEL TO REDUCE FLOOD LOSSES
CHECKLIST FOR ADDRESSING YOUR COMMUNITY'S
FLOOD PROBLEMS
HOW FLOODS CAN AFFECT YOU
"Elected public officials must give the same attention and priority to their flood problems as they
give to their police and fire problems. In the history of Rapid City, perhaps 35 people have died
in fires and another 35 have been killed during the commission of crimes. But in just two hours,
238 died in a [June 19721 flood."— Don Barnett, former Mayor of Rapid City, South Dakota
INTRODUCTION If you are a local official in one of
America's 22,000 flood -prone jurisdictions, you face a
low-lying lands called floodplains. In hilly and mountainous
areas, flooding is likely to be rapid, deep, and dangerous.
major dilemma. How should you plan now to be pre- In relatively flat floodplains, land may stay covered with
pared for future floods? Should you do nothing and hope shallow, slow -moving flood water for days or even weeks.
you won't have to answer to angry and confused citizens
after a flood occurs? Unless your community
has planned ahead, it will be very
difficult to resolve tough issues
during the chaotic and emotional
period after a flood. This guide
will help you, as an elected official,
to plan and take action to prepare
your community for floods that will
happen, either during your term in c
a later date. Everyone will benefit from your initiative
FLOODS AND FLOODPLAINS IN YOUR COMMUNITY
Floods are natural processes. Throughout time they have
shaped the landscape, provided habitat for wildlife, and
created rich soils. Cumulatively, floods have also been
our nation's greatest natural disaster, disrupting lives,
Human activity often leads to flood damage. When
people use flood -prone areas along rivers
1 streams, they do two risky things.
First, their homes, businesses, and
activities get in the way of the
natural overflow of the waterway.
Sooner or later, they will be dam-
;ed or destroyed. Second, their
lings, pavement, landscaping,
,...� ,her facilities take up space in the
normal floodplain that is needed to carry extra water
during a flood. This forces the flood water to move
farther away from the natural waterway, flooding more
land. It sometimes also increases the velocity and height
of the floodwater.
In addition, there may be flood hazard areas along
and often causing significant economic losses. Television the smaller streams and other watercourses in your com-
coverage of floods and their consequences has provided
vivid images of the damage that can be done
Floods happen when runoff exceeds the capacity of the
munity that have not have been identified or mapped
through a study of its flood problems. And new devel-
opment can increase water run-off, causing flooding in
river or stream channel. Water overflows onto the nearby places that have never been flooded before. Some flood
page 7
problems result from water runoff or its accumulation in low-lying areas. Again,
development may make the situation worse.
Our ancestors did not have the information you have about where floods occur.
They settled along rivers and streams for reasons that were valid then — rivers
"The first time the floods came they were an Act of God. The next time provided fresh water, transportation,
the floods came they were my responsibility." — Pennsylvania official and energy. This pattern of develop
ment continued as communities
grew to their present form. As a result, a large portion of your community's tax base
and major economic centers may already be located in areas susceptible to flooding.
YOUR ROLE AS AN ELECTED OFFICIAL As a local official, you may now have to
deal with the consequences of those past decisions. You are likely the one who needs
"All local officials should take the time to familiarize themselves to provide leadership so that your
with the areas that are prone to flooding, their community's flood constituents do not make the same
protection program, and its emergency response plan. Your constituents mistakes in the future.
Unless there has been a recent
are counting on you to do your homework and be prepared." flood, you may not know much
— Christopher C. Johnson, Mayor, Agawam, Massachusetts about the actual flood risk in your
community. You may not realize that many community problems and needs are
closely connected to how its floodplain areas are used.
By recognizing the problems that floods can cause to your community and the
resources that floodplains can provide, you can create opportunities for finding far-
reaching solutions to flooding and other, related issues. You can do this by:
• Understanding where flooding occurs
in your community and why.
• Understanding the benefits that flood -
plains can provide to your community.
• Leading an investigation of the best
ways your community can avoid
flood damage and maximize the potential of your floodplains.
• Providing leadership in setting goals, implementing them, coping with a flood
disaster, and supporting wise flood recovery measures.
• Ensuring the public health and safety of your constituents — always your
primary concern.
page 8
• Setting a positive public example.
• Keeping long-range, community -wide goals in mind and balancing them against
potential short-term economic gains.
• Making sure that all available local resources are used wisely.
• Obtaining technical and financial assistance when needed.
• Building support for your community's vision of its future floodplains.
There are many different kinds
We need to do a better job of making people aware of hazards." —
of floodplains and flood problems.
But experience has shown that cer- Phillis Roberts, Councilwoman, Arnold, Missouri
tain techniques and activities usually reduce flood damage and make the most of
floodplain lands no matter what the situation. This document shares with you some
of the problems, opportunities, and techniques that have brought success to other
communities like yours.
page 9
WHAT You CAN Do BEFoRE A FLooD
"Taking .the time to plan and prepare a solid floodplain management and emergency
response program is the only way to minimize the devastating impact that flood waters can
have on your community."— Christopher C. Johnson, Mayor, Agawam, Massachusetts
UNDERSTAND YOUR FLOOD PROBLEM First, investi-
gate your community's flood risk so that you understand
its magnitude and the places most at risk. Read newspaper
accounts about past floods and examine the photographs.
But do not assume that what you can find in old newspa-
pers is the whole story. Flooding may have occurred infre-
quently, so they probably do nc
full history of your past floods.
Technical studies of your
community's flood risk may
have already been done by a
federal or state agency so there
are reports and maps that descr
the flood risk for most of the sti
your community. Find out which of your departments
has this information in their files. Or check with a state
agency, regional planning or special district office, or the
nearest office of the U.S. Army Corps of Engineers, the
Natural Resources Conservation Service, or the Federal
Emergency Management Agency (see Appendix A).
After studying the technical reports and maps, visit
constituents who live or have businesses in these areas.
UNDERSTAND YOUR FLOODPLAIN Although floods are
a problem for many communities, floodplain lands are
valuable community assets. The natural resources con-
tained in flood -prone lands and their natural functions can
mnunity's overall quality of
'his role has been undervalued
ll too frequently in the past.
Substantial gains can
be made by transforming
stream and river floodplains
m problems areas into value-
ommunity assets. Parks,
bikepaths, open spaces, wildlife areas, and aesthetic
features are important quality -of -life issues to today's
citizens. And assets like these make your community
more appealing to potential employers, investors, home-
owners, and tourists. You are uniquely positioned to tap
these resources for the benefit of your community.
When portions of floodplains are left in or restored
the areas that are subject to flooding. Visualize how deep to a nearly natural state, not only do they reduce the
the flood waters will be in each neighborhood (you can number and severity of floods, but they also can help
obtain that information from the technical study men-
tioned above). Notice which properties would be affected
and how. Get first-hand accounts of past floods from your
handle stormwater runoff and minimize nonpoint water
pollution, for far less money than it would take to build
facilities to correct these problems.
page 10
DISCOVER WHAT YOUR COMMUNITY HAS DONE INVESTIGATE WHAT IS
ALREADY IN PLACE Find out what your community has already done to lessen
IYPICAL FLOOD -RELATED
RESPONSIBILITIES OF
LOCAL DEPARTMENTS:
the consequences of future floods. Most communities
• Have zoning ordinances, subdivision regulations, and other measures that
regulate development in identified flood -hazard areas.
• Participate in the National Flood Insurance Program so that citizens can
purchase flood insurance.
You may find that your community also has taken some of these additional steps:
• Using flood forecasting and warning systems.
• Having emergency plans telling what to do when a flood threatens.
• Buying flood -damaged properties.
Usually this means relocating the resi-
dents or businesses, demolishing or
moving the structures, and using the
newly vacant land for open space.
• Participating in the construction or
maintenance of flood protection facilities like upstream dams, dikes, levees,
floodwalls, and channel alterations.
• Individual property owners may have elevated their buildings above expected
flood levels or built walls or dikes.
• Adopting measures to control runoff from developing areas outside the floodplain.
IDENTIFY DEPARTMENTAL RESPONSIBILITIES Various offices or departments
of your local government probably have been assigned responsibility for flood -related
tasks. Take inventory of who does what. Review coordination and cooperation
BUILDING PERMITS AND ZONING
Enforcement of codes and ordinances
adopted by the council or board, in-
cluding those for flood -hazard areas.
PARKS AND RECREATION Planning,
development, and management of
parks, recreation, and other open -
space facilities in flood -prone areas.
PUBLIC AFFAIRS Public awareness
of flood hazards and individual
protective measures.
URBAN RENEWAL Incorporating
flood damage reduction measures
into urban renewal.
PLANNING Incorporating the flood
risk and actions to address that risk
into the community's vision for
the future.
ECONOMIC DEVELOPMENT
Providing opportunities for economic
development while accounting for
the exposure of such development to
flood risk and economic loss.
PUBLIC WORKS Stormwater man-
agement, erosion control, water
supply, waste treatment, flood
emergency measures, and repairs.
EMERGENCY MANAGEMENT AGENCY
Response to emergencies, including
floods.
FIRE AND POLICE DEPARTMENTS
Public notification of flood threat,
evacuation, roadblocks, traffic control.
page 11
among the departments. This review should be repeated at least every few years
because of staff turn -over and changes in responsibilities.
LOCATE ASSISTANCE SOURCES OUTSIDE YOUR COMMUNITY Your staff has
probably received some technical assistance on floodplain management from a
regional, state, or federal agency in the past, such as grants or loans for mitigation,
reconstruction, or other flood -related activities. If there are flood control structures
"The potential for flooding should be revisited by all local govern- within your jurisdiction, your com-
ments annually, especially their police, emergency, public works, munity may have entered into cost -
sharing or maintenance agreements
and medical personnel. The problem is that after an event has taken
for them with a federal or state
place and time passes, people tend to forget or the real impact seems agency or with another jurisdiction.
less vivid." — Beverly Anderson, Mayor, Darlington, Wisconsin Find out when and in what ways
regional, state, and federal agencies and private groups have helped your community
with floodplain-related activities in the past. Review any past agreements with other
entities to be sure your community is carrying out what was intended. This will also
help you find places to get advice and assistance in the future.
COORDINATE WITH OTHER ACTIVITIES AND PROGRAMS Floods and flood -
plains are interrelated to many of the rest of your community's concerns. Just as a
"[As a nation we need to] recognize the importance of continuing serious flood would affect everyone
to some extent, so does the flood -
to ... reduce the loss of life and property caused by floods and to pre- plain benefit everyone. There can be
serve natural resources and functions of floodplains in an economically a lot of beneficial overlap between
and environmentally sound manner.... [T]he natural resources and floodplain management and urban
functions of our riverine and coastal floodplains help to maintain renewal, economic development,
the viability of natural systems and provide multiple benefits for parks and recreation, stormwater
the people." — The Presidents letter transmitting A Unified National management, and maintaining or
Program for Floodplain Management to the U.S. Congress, March 1994. improving water quality and fish
and wildlife habitat.
Even if your community is already actively managing its floodplains, finding
ways to combine those activities with other community functions can still save time
and money, improve the quality of life for your constituents, and build a broader and
longer -lasting base of support.
page 12
EVALUATE YOUR COMMUNITY'S CONCERNS, INTERESTS, AND NEEDS When
investigating ways to reduce your flood losses, you can also find out how flood -prone
areas are being used, what kind of development is there, and how important these
areas are to your community and its plant and animal life, recreation, historical sites,
tourism, and quality' of life.
Evaluate community needs and interests. Think about whether your flood
problem areas could be put to better use by meeting some of these other needs. This
evaluation involves identifying the interests and concerns of other residents and
community groups that can complement or support floodplain-related activities.
FLOOD LOSSES IN YOUR
COMMUNITY FALL INTO
TWO GENERAL CATEGORIES:
(1) PRIVATE LOSSES are those
suffered by individuals
• loss of life
• property damage
• disruptions to business
and employment
• costs for health care for
flood -induced illnesses
• expenses for temporary
housing and travel and
transportation disruptions.
(2) PUBLIC LossEs affect everybody
and have to be absorbed by your
community's present and future
budgets
• emergency flood protection
• debris removal
• repairs to roads, streets, public
utilities, public buildings
and equipment, water
control facilities, and parks
and recreation.
page 13
GOALS ARE GENERAL
STATEMENTS OF DIRECTION;
OBJECTIVES ARE MORE
SPECIFIC TARGETS.
(1) GOAL: Reduce flood damage
to existing buildings.
OBJEc wE: Acquire from ;
willing sellers all homes that
were damaged along River
Road during the 1995 flood.
(2) GOAL: Create trails that
connect neighborhoods.
OBJECIIVE: Create a hiking,
jogging, and biking trail along
Floody Creek that connects
Sunset and Sunrise Parks.
A 7-FOOT DIFFERENCE
in the elevation of the bottom floor
of an insured $150,000 home in a
floodplain with $25,000 contents
can mean the difference between an
annual flood insurance premium
of $274 and $5230.
The goal is to bring these diverse interests together, reduce conflicts, and increase the
opportunities for mutual support. Broad -based solutions will cost less than dealing
with each problem separately.
ESTABLISH COMMUNITY GOALS AND OBJECTIVES You and other elected
officials can form a group to identify common goals and objectives for the community.
Organizing can be done informally, but a more formal organization may be more
productive if the issues are complex. A group may already exist, such as a neighbor-
hood association.
It may take the organized group, and the public, some time to reach a consensus
on the community goals
and objectives. However,
the time spent is well worth
it because this process is
vital to getting cooperation
from everyone. Where
possible, settle on goals and
objectives that support
more than one interest.
Agreeing to "maintain
wetlands" can meet many
needs at once. For example,
they (1) provide natural flood storage areas, (2) reduce flood levels, (3) perpetuate
natural vegetation, and (4) improve wildlife habitat. It may not be possible to obtain
complete agreement on everything, but you should try to build consensus among all
affected stakeholders so that everyone can live with the recommendations.
SELECT APPROPRIATE MEASURES Your community has at its disposal many
proven measures for managing its floodplains. (They are described in some detail in
Appendix B). You can combine them to tailor a program especially for your commu-
nity's floodplains and its goals. A consensus should be reached on which measures
to employ. Compromise may be required. Here are some things to consider when
deciding which techniques to use.
• Measures that will meet more than one community need are more cost-effective
and easier to defend before critics. For example, water detention basins for
page 14
storm and flood waters can also be used as athletic tields and parks. In many
cases, the renewal of a flood -blighted waterfront can stimulate economic rede-
velopment and tourism.
• Measures that will achieve the most public good are those that prevent an increase
in flood risk. They keep future devel-
opment out of flood hazard areas with
zoning ordinances, subdivision regu-
lations, and other codes. They should
also control water runoff from other
developing areas.
• Measures that achieve the most public goodwill are those that reduce the exposure
of existing development to flood risk and that provide amenities to the community.
These include controlling flood waters, raising some structures above projected
flood levels, or removing others from the floodplain.
• Many state, federal, and private groups specialize in certain flood loss reduction
measures. It is possible to capitalize on the help that is available. See the list of
sources at the end of this guidebook.
BUILD SUPPORT BY PROMOTING FLOODPLAIN MANAGEMENT You will be
WHO TO INVOLVE?
The process of choosing ways to
reduce flood losses and meet other
community needs should involve:
• owners or renters of flood -prone
properties (residential and
business)
• neighborhood organizations
• homeowner associations
• farmers, industries, and anyone
else whose use of the land affects
the floodplain
• land developers, real estate agents,
lenders, and anyone else whose
activities affect the future of
local land
• organizations interested in the
stream corridor
• the media.
faced with the prospect of generating interest and support for floodplain manage-
ment from the rest of the community. "T
ulsa's
s flooding problems were legendary, and only the most
Unless your community has experi-
enced a flood within the past year courageous of community, leaders would have tackled the task of
or two, you will face a number of finding long-range solutions. In the short term, floodplain manage -
daunting challenges. ment can be controversial, but in the long term it is rewarding,
CHALLENGES YOU WILL FACE because you are willing to do whatever it takes for the good of your
• The public pays little attention community. "— M. Susan Savage, Mayor, Tulsa, Oklahoma
to flooding potential. Most people do not believe that their community will
experience a flood disaster.
• The political rewards for dealing with flood hazards before a flood are often
small but they may have a big payoff after a flood. Many immediate problems
command your attention and that of other elected officials. It is hard to commit
public funds to avoid a flood disaster when the benefits will not be realized
until some uncertain future date.
page 15
EFFECTS OF NON -
PARTICIPATION IN THE
NATIONAL FLOOD
INSURANCE PROGRAM
If a community chooses not to
participate, or if it loses its eligibility,
• No resident can purchase or
renew flood insurance.
• No federal mortgage insurance
(like VA and FHA) will be
provided for properties in
flood hazard areas.
• No federal grants or loans may
be made for buildings in flood
hazard areas.
• No federal flood disaster
assistance will be provided in
flood hazard areas.
• In some states, state disaster
assistance, grants, and loans
are denied.
• Homes and other construction
in flood hazard areas may become
unmarketable.
• Your local government may be
legally liable for denying its
citizens the opportunity to
purchase flood insurance and for
failing to take other measures to
reduce the risk to life and property.
• Few citizens place a high priority on flood preparedness. But these same people
expect you, as their elected leader, to limit damage to life and property from flood
disasters when they do occur.
• Prevailing attitudes toward personal property rights and government regulation
may work against the adoption of many flood damage reduction measures.
• Interest groups opposing floodplain
management measures are well
organized and vocal, while coalitions
supporting local flood prevention
programs are rare.
The decisions that you have to make in
the face of these challenges involve basic and sometimes emotional issues: balancing
individual and community property rights, and the need to protect the public health,
safety and welfare, along with balancing short-term gains against long-term benefits.
OVERCOMING BARRIERS Perhaps the most effective way to combat these
attitudes and misperceptions is by building understanding and consensus about
your community's flood problems and floodplain management goals, and other
goals. Getting other community leaders (business, industry, organizations, groups)
involved also builds a sense of ownership of the problem and its solution.
Here are some things to keep in mind.
• Recent court decisions have upheld
laws that restrict use of private prop-
erty subject to flood hazards.
• Emphasize the public safety aspects
of flood reduction measures. Careful
planning and management of floodplains reduces jeopardy not only to the
residents of these areas but to workers and volunteers who must undertake
response efforts after a flood disaster.
• Have a vision of your community's future that includes floodplain resources.
• Make the case for wise use of flood -prone lands to the public as well as to your
own department heads. This can be done through the media, and presentations
before clubs and organizations, "special interest" groups, and in staff and depart-
ment meetings.
• Gain the public's confidence by being knowledgeable, setting a good example, and
page 16
making it dear that you have the whole community's long- term well being in mind.
• Flood damage is not paid for solely by people who knowingly subjected them-
selves to the risk. The costs of rescue, cleanup, and reconstruction, for example,
are shifted wholly or in part to society at large.
CARRY OUTYOUR PROGRAM Once planning has been accomplished, you may
find that your community does not have financial and technical resources to carry
out everything it has decided would be worthwhile. Priorities will have to be estab-
lished. Then your community can implement measures as soon as funding and other
types of support become available. Often, this occurs after a flood disaster in the
form of disaster assistance.
Different floodplain management activities require different implementation tech-
niques. Some can be accomplished for little or no money. Some require a great deal of
technical expertise. Some may require taking an unpopular stand on a public policy.
Among the techniques are:
• Administrative procedures — adoption of ordinances controlling future use of
page 17
A TYPICAL SCENARIO that many
local officials face involves proposals
for development of flood hazard
lands. The developer offers the
prospects of jobs and an increase in
the tax base. The flood problems are
trivialized or the developer states
that "the flood problem can be fixed."
These sound like very persuasive
reasons for supporting the proposed
development. BEWARE, the short-
term gains in your tax base from
such development can quickly be
lost to later flood damage that can
become a chronic problem. Many
communities have realized only later
that the flood problem at that site
was never "fixed." (In most
instances, it is very difficult to
'fix" a flood problem.) You should
seek an independent opinion and not
rely solely on the opinions, plans,
or promises of the developer.
flood hazard areas.
• Assignment of responsibility to existing departments — preparing public aware-
ness and education materials about flood risks.
• Using volunteer groups — public awareness campaigns, stream cleanup projects,
building or maintaining trails.
• The budget process — improving the local flood warning and response system.
• Contracts or agreements
with other parties —
construction of flood
control works; obtaining
technical or financial
assistance.
• Official policies —
limiting services and
utilities to control
unwanted development
in certain areas.
• Working with other communities to manage stormwater in developing areas.
YOUR ROLE IN MANAGING YOUR COMMUNITY'S FLOODPLAIN PROGRAM
Your commitment — and that of other elected officials — will determine the success
or failure of your community's floodplain management effort. If you believe in the
program's need and purpose, then you will take actions to ensure that it is carried
"I have noticed that addressing the flood threat issue will not out within the limitations of your
help get an official elected, but experiencing a flood will help the community's resources.
• Take the lead in choosing a few
official lose the election." — Windeli Curole, General Manager, easy win -win projects to do quickly.
South LaFourche Levee District, Galliano, Louisiana Tangible results will demonstrate to
the community that you and other officials are serious and can deliver. This can
help overcome public skepticism.
• Maintain a vision of the future. Do not lose sight of the complex projects, which
may be more important overall in addressing your community's flood problems.
• Invite neighborhoods to meet to discuss flood -related activities and other com-
munity needs that might be tied to them.
page 18
• Support your staff by making sure they get the special training they need and by
SEVERAL FEDERAL AND STATE
letting them know what is expected of them.
The "action items" described in this chapter are listed in the Checklist for Address -
ing Your Community's Flood Problems, found at the end of this document.
MANAGING THE WHOLE WATERSHED Ideally, flooding and floodplains are
managed at the watershed level. A watershed is all the land area that drains to a
specific location along a stream or to a water body. Activities that result in runoff
anywhere within the watershed can increase the incidence and magnitude of floods,
with dire consequences for those downstream. You should try, therefore, to reduce
assistance programs require that
your community has adopted
plans for various aspects of flood -
plain management. Make your
plans "count" for as many
programs as possible by having
funding agencies review them.
page 19
and store runoff naturally throughout the watershed. Take measures to make sure
water can infiltrate the soil. Preserve as many wetlands, depressions, and other nat-
ural storage areas as possible. Adequate detention of water runoff from developing
areas should be a primary goal.
Obviously, these watershed -wide techniques are much easier to achieve if the
"If we really want to help local officials do a better job, we have to watershed is entirely within your
convince them of the importance of watershed planning and respect community's jurisdiction. But if
for natural forces. I have had to be convinced myself. To a large other jurisdictions contribute to
your flood problems (or detract
extent, ignoring these factors has caused our flooding problems." from your floodplain resources), or
— Peggy Glassford, Village Manager, Flossmoor, Illinois you to theirs, then coordination and
cooperation with them is important. Regulatory consistency and coordinated flood
response will ensure that land uses are compatible and mutual aid available in a
flood emergency. There are many ways localities can pool their resources — technical,
financial, and personnel — for flood damage reduction studies and projects.
page 20
THE FOLLOWING ACCOUNTS of how four localities addressed their flood problems — and, in doing
so, met multiple community needs and goals — are truly "success stories." They are included to give
you a chance to hear about the situations that officials in other communities faced, what they did,
and how well it worked. Their experiences also reveal some of the local elements that appear to be
necessary for success.
Mayor Beverly Anderson of Darlington, Wisconsin, describes her community's flood mitigation
efforts, which included historic preservation, economic revitalization, and land use/reuse compatible
with the flood risk. Their objective was "to reflect a change in our River's image" through flood
mitigation. A mixture of projects was carried out with assistance and funding from several sources.
The importance of having a previously prepared flood mitigation plan is demonstrated.
Community Affairs Manager Ann Patton of Tulsa, Oklahoma, shares her community's journey from
"worst to best." From having the nation's worst flood record in the 1980s to having one of its best
programs for dealing with flood and stormwater at the present, Tulsa has a program characterized as
"born of great loss, hard lessons, and tremendous political courage." Lessons Tulsa "learned the hard
way" are shared for the benefit of others.
Former Union County, South Dakota, official John LaBrune recounts the pressures local elected
officials often face when confronted with attractive economic development proposals. Much of the land
in this instance was flood -prone. The experience is described as "a cooperative beginning in which flood -
plain management and economic development can survive and be beneficial to everyone involved."
Village Manager Peggy Glassford of Flossmoor, Illinois, reveals the path traveled by a committee
formed by governments under extreme pressure to "do something" about flooding. The group "began
by looking for a quick fix to the flood problem and found instead that the only effective solution is a
long, cooperative journey in multi -objective stormwater management," involving the entire Butterfield
Creek watershed. Their experience provides information that may be useful to others.
Success Stories 1
FLOODED WITH PRIDE - MITIGATION FOR REVITALIZATION
BY BEVERLY ANDERSON FORMER MAYOR, DARLINGTON, WISCONSIN
Darlington, nestled in a valley in southwest Wisconsin, is the county seat of Lafayette County, the most
agriculturally dependent county in the state. It was settled in 1836 along the banks of the Pecatonica
River, which was used to transport products, provided recreation (boating, fishing, swimming), and also
generated the community's electrical power until the turn of the century when the dam was removed.
Historically, the river would rise in the spring, flooding the lowlands, and approximately each 20
years when summer torrential rains caused major flooding covering the lower two -and -one-half blocks
of the retail and service business sector, residences, businesses and farm lands up and down the river.
Having literally grown up on Main Street, actively involved in a family business for 42 years, it
always bothered me that during flooding episodes the news media printed pictures of the "old timers"
standing on the bridge watching the river rise and then of us, shirt sleeves and pant legs rolled up, wal-
lowing in mud, cleaning but seemingly doing nothing to prevent the repeated damage of future flooding.
So upon becoming involved in city and county government in the mid 1970s, we began initiating
an extensive land use program using Land and Water Conservation and Wisconsin local park aides'
funding to relocate extensive land use businesses (lumber yards, fuel companies, agricultural supply,
etc.) out of the floodway, rid ourselves of blighted areas, and use the land along the river for parkland,
for recreation, and other compatible uses.
We engaged the U.S. Army Corps of Engineers to do a topographical study before allowing further
development in the floodplain. The abandoned rail system, which ran adjacent to the river, was Inter-
state Commerce Commission railbanked and a 49-mile multi -use recreation trail was implemented.
After the major flooding of 1990, the city government immediately began organizing a task force of
pertinent agencies of higher levels of government and state and federal elected officials to meet, coordi-
nate, and collaborate as to what resources and/or financing each could offer for an acceleration of an
extensive flood mitigation effort that would also include historic preservation, economic revitalization,
and ultimately contamination remediation.
Wisconsin Emergency Government and the National Trust for Historic Preservation agreed to fund a
flood mitigation plan. The city, Wisconsin Emergency Government, the Federal Emergency Management
Agency, and pertinent agencies within the Department of Natural Resources had been meeting on flood mit-
igation issues for several years, so much of the groundwork had been laid and, of course, all continue to be
involved. The Corps of Engineers and Soil Conservation Service furnished the personnel to provide research
data and statistical information. The state historical society also provided personnel to do the necessary sur-
vey and research work to enable Darlington's designation to the state and national registry of historic places.
When the 1993 flood and second presidential declaration occurred and monies became available
for grant applications, Darlington had its mitigation plan and was ready to move ahead. The Economic
Success Stories 2
Development Administration had provided monies to the regional planning agencies to hire a profes-
sional to help communities coordinate flood mitigation efforts. A state interagency team was formed of
many of the same agencies and staff who had previously met with Darlington, so everyone was very
familiar with our goals. Nevertheless, we embarked on what has become a very energetic, challenging,
and complicated mix of projects that were to have been completed at the end of 1997, but will be ongo-
ing due to regulatory requirements for contamination and limitations in funding. Estimating the costs
of the many required studies, regulatory changes, and code requirements such as those of the American
Disability Act or the acquisition/relocation laws, is virtually impossible.
Next I will outline our complex mix of projects using funding from the numerous sources and list-
ing our successes and remaining challenges.
RESIDENTIAL FLOODPROOFING Accomplished through a Community Development Block Grant
through the Wisconsin Department of Administration in the amount of $431,000. Four homes were
elevated and basements filled; others mitigated with flood walls,
sump pumps, back -flow valve installation, utilities and entrances
raised, or land excavating improvements for proper drainage. The
cost of mitigating 52 houses/properties ranged from $200 to $33,000
each. In most instances, residents put additional funding into their
projects thus improving the value of their property and quality of their lives and neighborhoods. Low
income, elderly, and large families were given priority and the project has been a complete success!
FLOODPROOFING OF HISTORIC DOWNTOWN AND BUSINESS COMMUNITY FEMXs 404
program funding of $1,500,414, inclusive of matches by WDEG and DOD/CDBG, and the Department of
Development providing $355,500 for architectural and engineering fees. This was the original estimate for
wet floodproofing 38 buildings (% having historical status), raising utilities and floors, and installing sump
and generator systems. The National Trust had previously furnished 10 desiccant -type dehumidifiers and a
sump pump to dry out the foundations and infrastructure of the buildings. The project became complicated
by several factors. First, the regulatory requirements of dry floodproofing, filling basements, and raising
floors two feet above the BFE escalated the cost by % to % the original estimate of $40,000 per building.
Second, there was the need to simultaneously deal with five major issues: (1) flood mitigation and
remodeling had to maintain the historic integrity of the buildings; (2) the need to maintain an economi-
cally viable downtown business district throughout the process; (3) implementation of a temporary
relocation plan allowing businesses to move temporary facilities maintaining the business activities
and income; (4) meeting ADA compliance by installing shared ramps in the rear of the buildings; and
(5) the installation of a central sump and generator system and flood gates.
We have completed eight buildings, have three in progress, and two ready to begin. Benefits of
this project are reduced economic and structural loss, quicker recovery after flooding, preservation of
Success Stories 3
historic buildings, and economic diversification from our agricultural dependency.
Recognizing the need for an intensive retention and recruitment program and long-range planning
in conjunction with the flood mitigation projects, we applied for and received a Community Based
Economic Development grant for $19,000 through the Department of Development and have begun a
succession of town meetings. Again the major problems encountered have been due to the changing
program regulations, code, and escalated cost. Thus we will fall short in funding, even though building
owners are responsible for all code requirements and building improvements not associated with flood
mitigation. Many are also remodeling second stories, creating offices or badly needed living quarters.
We will continue to strive to obtain funding for completion of this critical project.
ACQUISITION/RELOCATION OF SEVERAL BUSINESSES Supplement I providing $20,500,
including matches by WDEG and DOD/CDBG, for acquisition appraisal for 13 designated properties,
and Supplement II providing $798,500, including matches by WDEG and DOD/CDBG, for actual acquisi-
tion and/or relocation. When demolition is required, WEG with in -kind match by city crew and equip-
ment, will provide funding. There are three important reasons for moving these commercial activities
out of the floodplain:
• The farm implement dealership, car dealership, and mill are magnet businesses impacting other
businesses and lie directly on the river bank. If lost due to flooding, customers will go elsewhere.
• By the very nature of the types of businesses that located along railroads (fuel companies, agricul-
tural supply, chemical) contamination occurred and one fuel company is still operating just above
town, thus creating a potential hazard with each flood.
• The deed restricted to green space designation all floodway land along the river. Parkland,
recreation, natural plant and habitat restoration adds to the economic, ecological, and social
welfare of the community.
SUPPORTING INFORMATION FOR ACQUISITION/RELOCATION PROJECT The city purchased
33 acres of land at $330,000 on the southwest end of the city for a business park for the relocation
process. The Economic Development Administration granted $697,000 to install the utilities and a lift
station. The owner donated $100,000 of the purchase price to our library, $50,000 toward our new
ambulance, and $5,000 to our fire department. The remaining $175,000 was used as local match for
grants. Four properties have been acquired and cleared, the papers have been signed for another four,
four properties are under contamination remediation, and we will be short of funding for two proper-
ties. Again, funding will be sought to complete the work.
Contamination has been the major problem and we are now waiting for the final results of testing,
determining type and extent. It has been determined that the properties are PECFA eligible. The
Department of Development furnished the $69,000 deductible for testing so if all goes well we should
be able to soon acquire and relocate before another flood. The city assumed the role of agent for the
affected businesses. It is our desire to relocate the businesses, do contamination remediation, then
Success Stories 4
acquire ownership. This is being negotiated as administrative policy demands contamination -free land
before acquisition, which greatly escalates the cost and hardship.
UTILITY/INFRASTRUCTURE REPLACEMENT Last but of utmost importance, were the city's fail-
ing utility systems. Our water system was inadequate both in flow and pressure to serve the business
park or even guarantee proper fire protection. We had been negotiating for several years with EDA for
a new south side tower and received a $974,280 grant. To realize the economic advantage, we upgraded
the entire system at a cost of $2.6 million. It went into operation early in 1995.
Since the flooding in 1990, our wastewater treatment plant, located in the floodway on an elevated
mound, has not provided treatment sufficient to allow main extension and we have been under mora-
torium. A new $5.5 million plant out of the floodway went into operation in the summer of 1996. Rural
Development (formerly Farmers Home Administration) provided a grant of $2,747,000 and lent us the
remainder. The old plant will be removed at a cost of $250,000 from the unused contingency in the
plant project, providing added parkland, lowering the base flood level 6 to 12 inches, and reducing the
water velocity during flooding.
This month we also received notice that we are the recipients of a $108,000 grant from the Depart-
ment of Development's public facility fund. It will be used to install a new lift station on the northwest
side of the community. This is a problem area during flooding, when many homes occupied primarily
by the elderly or young families experienced sewage backup in their basements.
CONCLUSION Darlington has worked continuously and aggressively to mitigate and reduce dam-
age incurred by businesses and residents during flooding. We want to recognize the agencies, their per-
sonnel, and those who have worked so hard and been sensitive to our needs. This was to be a model
project so we want it to be a "model of success." So often, regulatory issues look good on paper, but
in the real world don't accomplish what is intended but merely elevate the cost beyond evaluation or
expectation. Each project encounters its own challenges and flexibility is imperative.
Our objective is that through flood mitigation we will be able to change our river's image to a positive
one, accomplish historic preservation, economic revitalization, contamination remediation, and be a safe,
prosperous, and viable community for generations to come. Therefore, we have erected signs at the four
major community entrances, financed through a fund drive by the local Chamber of Commerce, stating,
"Darlington, The Pearl of the Pecatonica" ... where the river flows and opportunity grows!
For more information, contact Bev Anderson, City of Darlington, 530 Washington Street,
Darlington, Wisconsin 53530, (608) 776-4093.
NATURE BATS LAST. TuLSA'S FLOOD STORY
BY ANN PATTON COMMUNITY AFFAIRS MANAGER, CITY OF TULSA, OKLAHOMA
It was 3 a.m. The newly elected city commissioner, in office only 19 days, was jarred from fitful sleep by
the loud ringing of his bedside phone.
Success Stories 5
"Commissioner!" Through phone static, he recognized the voice of the mayor. "I need you to come
to the emergency operations center right away. I'll send a truck to get you. It's flooding."
"No!" said the commissioner. "Where?"
"Everywhere."
Thus began Tulsa's worst natural disaster, our 1984 flood.
G
City leaders huddled in the Emergency Operations Center throughout the nightmare night, shell-
T g
;E
shocked by volley after volley of horrifying reports of destruction all across town. They mustered all
available forces to battle the flood. There were miraculous victories, such as in Holiday Mobile Home
Park, where a life flight helicopter pilot braved the storm to rescue 40 people; they were plucked
from their roofs, one by one, by an outstretched hand of the chopper nurse. Overall, our forces were
puny by comparison to the overwhelming power of the water reclaiming its floodplains.
Before dawn, as much as 15 inches of rain had fallen. Fourteen Tulsans had lost their lives in flashing
waves of water. Another 288 were hurt. Nearly 7,000 homes and businesses were ruined, and another
7,000 cars and trucks — including city fire trucks, police cars, and ambulances — were destroyed.
Damage was $183 million.
During that terrible night, the commissioner and our new young mayor vowed to do whatever
they could — and the political cost be damned — to prevent Tulsa from suffering such a flood again.
That commitment produced Tulsa's comprehensive stormwater
management program — a program born of great loss, hard lessons,
and tremendous political courage.
BACKGROUND Floods have haunted Tulsa's history. Tulsa
was built over the past hundred years on the banks of the Arkansas
River, on rolling terrain networked with floodplains. The city, now encompassing 200 square miles and
r
380,000 citizens, lies within the infamous "tornado alley," where colliding weather systems often pro-
duce spectacular thunderstorms, most treacherous in the spring and fall. As we grew, lowland develop-
ment was ripe for flooding that seemed worse every year.
By the 1980s, Tulsa County had garnered the worst flood record in the United States, nine federal flood
disaster declarations in 15 years. Real estate markets were virtually dead in sprawling sectors of our com-
munity; and we were gaining a reputation as the nation's flood capital, thwarting economic development.
The city's record was transformed from "worst to best" after that flash flood on Memorial Day 1984.
The program actually began in the 1970s, when Tulsa entered the National Flood Insurance Program
(NFIP), but local political opposition stunted implementation. After the '84 flood, leaders were able to
muster community -wide consensus that continues today. Since 1993, our citizens have enjoyed the lowest
flood insurance rates in the U.S. because the federal government's community rating system has ranked
our program first in the nation.
Success Stories 6
We call our flood and stormwater management program comprehensive because we plan and
regulate over entire watersheds, not just the lands along lowland waterways; and because it includes
a broad spectrum of carefully integrated elements. Here are some key features:
• Strict regulations, in floodplains and throughout watersheds, are based on performance standards
that allow new buildings — if, and only if, the developers can prove they won't flood or make
others flood. Our baseline priority is sound regulation, to avoid developing new flood problems.
• Nonstructural flood -hazard mitigation programs include acquisition of floodprone buildings to
correct existing problems. About 300 flooded homes and 200 mobile home pads were cleared after
the 1984 flood. We've cleared about 1,000 buildings from floodplains so far. We prefer smaller, con-
tinual, pre -flood acquisition programs that allow us to work one-on-one with owners and tenants.
• Combination capital programs include open space greenbelts, channels, sewers, and stormwater
detention basins. They are based on citywide master drainage plans and are funded by general
obligation bonds or sales taxes, plus supplemental federal dollars. Over the past 15 years, Tulsans
have committed more than $200 million to flood -management capital works.
• A stormwater utility fee provides about $10 million a year for on -going system maintenance and
management. Everybody contributes to flooding runoff, so everybody contributes to the fund for
its management. All residences pay $2.78 a month. Business fees are based on impervious area.
• Aggressive public education and awareness programs include media campaigns, direct mail, water -
quality education, warning and evacuation programs. Every year, we send notices reminding flood -
plain occupants that they are in a flood -hazard area and urging them to buy flood insurance.
• Multiple -use facilities. Many floodplains and detention basins are used for passive or active recre-
ation. Maintenance trails along channels are also used for hiking and biking, in a Tulsa Trails system
that ultimately will network the city.
LESSONS LEARNED Among lessons Tulsa learned the hard way:
• Nature bats last. The most natural way is best. When it's feasible, preserve or clear floodplains and
give the flood the right of way. The floodplain belongs to the river that carved it.
• Erase your mistakes. When possible, keep buildings out of the floodplain, or move them out.
Floodplains can be safely used for some purposes, such as recreation, but they are not safe places
for people to sleep. It's human nature to want to rebuild after a flood, but it may be more prudent
to pause and evaluate, to see if there are better options.
• Marry structural with nonstructural. When it's not possible to just retain floodplains as open space,
management strategies must be comprehensive and fairly sophisticated. Structural projects, such
as channels or levees, may be the only short-term possibility, but they have inherent long-term
negative consequences because, sooner or later, the flood will reclaim its floodplain.
• Everybody pays, everybody wins. Flood disasters can divide a community, but they can also draw people
together. It takes commitment from people on the hills as well as those in the lowlands to curb flooding.
Success Stories 7
• Go beyond federal requirements. Build on the NFIP, which offers flood insurance to communities
who use basic floodplain management tools. But if we had stopped there, we would have cheated
our citizens in the long term. Prudent floodplain management requires an extra margin of safety,
going beyond the NFIP to consider, for example, the effects of future watershed urbanization. (All
that paving and piping can speed runoff and increase downstream flooding. That's why we base
Tulsa's floodplain maps on ultimate watershed urbanization; require upstream detention or fee in
lieu of detention; require compensatory valley storage; and require new buildings to have the low-
est floor at least one foot above the predicted flood level.)
k
• Go for the green. With good floodplain management, a community can reap great rewards. Open
1
spaces can be used for greenway strip parks and trails, for example. Using the same land or resources
to achieve multiple goals such as water quality, recreation, transportation, and flood control, all in the
same project, can make every project more effective and broaden your constituency.
• Don't give out. Floodplain management is a long-term proposition, and you can t sell out the long-
term for short-term gains. Getting that point across to citizens probably requires an education pro-
gram. Your best friend may be your local news media; in Tulsa we are blessed with aggressive local
journalists and editors who understand long-term issues and help us explain them to the public.
CONCLUSION Tulsa hasn't suffered a major flood in a decade, the longest flood -free period in our
history. We have no record of flood damage to any building built in accord with our updated, compre-
hensive regulations. Several rains have occurred that would have caused flooding previously, but the
upgraded stormwater system has handled them without significant damage.
We know that, inevitably, Tulsa will flood again. We believe, however, that flood dangers and
damages have been immeasurably reduced because our leaders had the foresight to make a hard -
willed commitment to progress. The greatest challenge in developing a flood program is finding the
community will, the vision, the local leadership, and the political courage. If you have ideas to share
with us, or if you would like more information, please contact Ann Patton, 515 City Hall, Tulsa,
Oklahoma 74103; (918) 596-7808; fax (918) 596-7265.
RIDING A "WAVE" OF COOPERATION
BY JOHN LABRUNE MITIGATION CONSULTANTS & ASSOCIATES
FORMER UNION COUNTY, SOUTH DAKOTA, FLOODPLAIN MANAGER
Union County is a largely rural county, population 10,500 and growing, in extreme southeastern South
Dakota. It is bordered on the south by the Missouri River (adjacent to Nebraska), and to the east by the
Big Sioux River (adjacent to Iowa). In the late 1980s a major utility company began assembling parcels of
land at the confluence of the Big Sioux and Missouri rivers. The developers acquired approximately 2,000
acres, and a formal announcement was made that they had plans to develop this raw, undeveloped piece
of unproductive land into a premiere "planned development" with areas set aside for schools, churches, a
Success Stories 8
professional business park, strip mall, 18-hole professionally designed golf course, and a 2,000-square-foot
clubhouse. Plans called for approximately 50 "estate" lots, ranging in price from $65,000 to $85,000 each,
along the Missouri River. Areas were also set aside for denser, zero -lot -line residences as well.
This was to be the largest single development from Minneapolis to Denver to Kansas City. The
economic considerations were overwhelming, not only for Union County, but the entire tri-state area
of South Dakota, Iowa, and Nebraska. The developers were aggressively pursuing their own exit off
Interstate 29 at mile marker one, in South Dakota. They announced that Arnold Palmer was to design
their golf course and was to get professional tournaments sponsored here. They were working on
legislation to address their development's needs and legal requirements.
Naturally, much of this land was flood -prone and a re -study was immediately started. Changes had
occurred since the last flood study and it was felt that due to these changes, a new floodplain may be
realized and also we would have new and current base flood elevation data to work with, as this area
was never engineered for the determination of base flood elevation. The study revealed that there were
numerous lots still in the floodplain, after the re -study, and certain construction practices would have
to be adhered to, as outlined by the floodplain ordinance. Union County was zoned and building
permits were required. Union County is also a participant of the National Flood Insurance Program. The
determined developers were not about to let this deter them from realizing their goals. They decided
to work with Union County and the NFIP regulations to effect the best possible result. From that point
on, it was win/win for both of us. Together, they worked with Union County, the state of South Dakota
and all other federal agencies to make this the newest and most state of the art community it envisioned.
Union County was able to interpret the regulations and apply these principles and practices into a sound
overall floodplain management program, and, now working hand in hand with the developers, were
able to effect a community today known as Dakota Dunes, South Dakota.
Dakota Dunes today has a growing population of approximately 750 residents and does, in fact,
have its own Interstate exit at mile marker one, an 18 hole "Arnold Palmer" designed golf course with
an annual pro -am tournament, a 2,000-square-foot clubhouse and a growing business park. It currently
has approximately 200 homes ranging in value from $140,000 to $4 million. There are also numerous
townhomes and apartment buildings, all located to complement each other. There is a medical facility
specializing in same -day surgery, numerous buildings offering office space for lease, and Iowa Beef
Processors, the nation's largest beef processor, recently announced plans to locate their corporate offices
here. Construction is constant. The developers and architects and I were able to integrate good flood -
plain management techniques into the overall construction to the benefit of both Union County and
Dakota Dunes' Community Improvement District.
Union County has since had two storms in which high water levels were of great concern, one of
which where the adjacent counties in South Dakota were Presidentially declared flood disaster areas.
At neither time were any structures in Dakota Dunes in danger of being flooded.
Success Stories 9
Because this was a cooperative beginning, floodplain management and economic development
survived and were beneficial to everyone. I credit the success of our floodplain management program
to the very capable Federal Emergency Management Agency's NFIP specialists at Region VIII in Denver,
Colorado, for their expert guidance, the developers who showed a genuine concern for their future ten-
ants and residents, and, most of all, the Board of Union County Commissioners, who stood behind their
ordinance, often at tenuous times, to the betterment of Union County. By adhering to their ordinance, not
only did they save countless dollars in potential disaster response and recovery, but they also mitigated
the threat to human safety during these operations. This is truly a success story. For more information
contact John LaBrune, 115 E. Main, P.O. Box 640, Elk Point, South Dakota, 57025; (605) 356-3242.
SEVEN COMMUNITIES TAKE A WATERSHED APPROACH
BY PEGGY A. GLASSFORD VILLAGE MANAGER, FLOSSMOOR, ILLINOIS
On June 13,1981, it flooded in the Butterfield Creek Watershed. The rain came in torrents, sheets, buckets
— it flowed across our communities, filling streets and lapping at doorways. We watched with wonder as
the water flowed through our towns — both in and out of creek, ditch, channel, and street. The water's
sheer strength was impressive. It was soon to be matched, however, by an equally impressive show of
force — this one was political.
At the municipal Board meetings following the June storm, it was standing room only. And it
was not enough for the local government to say that "God makes rain." The government was under
extreme pressure to "do something" about flooding. Political pressure to end flooding resulted in the
formation of the Butterfield Creek Steering Committee, a watershed group that began by looking for a
quick fix to the flood problem and found instead that the only effective solution is a long, cooperative
journey in multi -objective stormwater management.
The Butterfield Creek watershed is a 26-square mile area located 30 miles south of Chicago, Illinois.
It is a steadily developing watershed with about 65% in typical suburban land use and 20% still agricul-
tural. The Watershed Committee is formed by seven communities who send appointed representatives;
the group is advisory to the individual communities.
When the Committee was first formed, the hope was that by working together, the communities
could attract state and federal dollars for a structural solution. The state and federal governments did
combine efforts to provide for a significant engineering study which was concluded in 1987. At first, the
communities were extremely disappointed with the results of the study. The required benefit/cost ratio
was not sufficient to attract federal or state funds for the series of huge detention basins which could
bring relatively quick relief. There would be no infusion of money and no easy answers.
Although the engineering study did not provide easy solutions, it did reveal three very important
facts about our watershed. First, the flood insurance maps for Butterfield Creek were inaccurate. Our
recalculated 100-year flood levels are higher — by as much as 2.5 feet in some locations. Second, deten-
S u cc e s s Stories 10
tion standards in force in several watershed communities were inadequate to prevent increases in
downstream flooding. Finally, the study identified significant areas of natural storage upstream. If
this storage were to be removed, flood damages in our watershed would go up by 50% or more.
Recognizing their vulnerability, downstream communities requested the cooperation of all the
towns of the watershed to continue to work together to prevent flooding from becoming worse.
Fortunately, communities responded positively; the study had driven home the fact that flooding
is a watershed problem that begins when the first raindrop hits the upland.
MULTI -OBJECTIVE GOALS Our Committee first established the following goals that clearly
lay out the multi -objective nature of our work:
1. Reduce flooding and minimize streambank erosion in the Butterfield drainage basin.
2. Protect the storm and floodwater capacities of natural detention areas and protect wetlands.
3. Preserve public open space to increase recreational opportunities (including trails), protect and
enhance natural resources, and improve the environment of communities and neighborhoods.
4. Improve stream maintenance to maximize natural resource benefits and aesthetics.
5. Improve the quality of water in Butterfield Creek and its tributaries.
6. Achieve a mutually supportive, basin -wide management and regulatory framework for develop-
ment activities affecting Butterfield Creek.
TAKING ACTION With goals adopted, our next step was regulatory. We needed to address those
critical issues pointed out by the engineering study. The Butterfield Creek Model Floodplain and Storm -
water Management Code was published in November, 1990 and has since been adopted by all five of
the critical upstream communities of the watershed. Here are some highlights of our model code:
• We are requiring that the storage capacity of those all important natural storage areas be main-
tained. Because portions of these areas are outside wetlands and floodplains, they were previously
unregulated. Now, any construction on these properties will require compensatory storage to make
up for lost natural storage. This is in addition to the usual detention requirements.
• Detention requirements have been significantly strengthened. We have beefed up detention standards
to match real world conditions. Release rates must meet 100-year storm limits of 0.15 cubic feet per
second per acre and two-year storm limits of 0.04 cubic feet per second per acre. The two-year
requirement is aimed at stabilizing runoff rates to prevent increased erosion of downstream channels.
• The adverse water quality effects of development are addressed by requiring effective soil erosion
and sediment control, encouraging "natural" drainage practices such as swales and vegetative
filters, and specifying detention basin designs which enhance pollutant removal.
• Our regulatory floodplains have been expanded to coincide with those demonstrated by the engineer-
ing study. The revised mapping has also been adopted at our request by the State regulatory agency.
• We have limited uses in the floodway, allowing only public flood control, public recreation and
open space, crossing roads and bridges.
Success Stories 11
• We are requiring 75-foot setbacks and 25-foot vegetated buffer strips for new development along streams.
• We are requiring site permits for all development. Development is defined as "any manmade change
to real estate" and includes a catch-all provision that covers "any other activity that changes the
direction, height or velocity of flood or surface water.. . ." This regulation applies to the grading of
all private property including residential. Improperly graded property has been a source of neigh-
borhood flooding problems for years — this is our effort to keep this from happening in the future.
• We have assembled all regulations related to stormwater management into one code. Therefore, our
code includes floodplain regulations, stormwater detention, wetlands protection, and erosion control.
With stronger regulations, the residents threatened by floods have been given some insurance. We
have not eliminated flooding, but it should not get any worse as long as we enforce our codes.
Over the last decade, our group has worked diligently toward our goals. We have attracted grant
monies for demonstration projects illustrating improved detention and erosion techniques. We held a
very successful open house to educate our residents on the advantages of floodproofing. We produced
a video tape for our cable channel to explain the work of the committee. Our greenway plan has been
incorporated into our region's master greenway plan. We have created a Vision Plan which is shown
graphically on a two-sided foldout publication. Most recently, we have been working through a State
grant to purchase a portion of those all-important natural storage areas.
BUTTERFIELD EXPERIENCE AS A MODEL We believe there are four universally applicable
lessons from the Butterfield experience. The first is that streams do not respect geographic or political
boundaries. Stormwater management must have the cooperation of all the watershed communities in
order to solve problems. Demonstrating a united effort also makes it much easier to get outside help.
The second lesson is that help is available. State and Federal agencies often receive criticism because
of their regulatory responsibility; in fact, they are a resource of unbelievably knowledgeable and dedicated
people who really want to help. We have been blessed with the help of these agencies. They cannot do all
things, but if the locality is willing to work with what is possible, much can be accomplished.
The third lesson is that it is as important to know what cart be done as what can be done. Our water-
shed had to accept that there would be no quick fix for flooding problems. We were going to have to help
ourselves and really significant results for our stream and our residents would take years of hard work.
Finally, efforts to manage stormwater also provide an opportunity to protect the environment and
provide recreation, but these efforts must be viewed in a holistic way in order to take advantage of the
opportunities. A multi -objective approach is critical.
Our creek, like all streams, bears the imprint of the watershed, its geographical gathering area, in
such a way that every activity on the land is registered in its waters. Flooding, erosion, and environmental
degradation are the creek's reaction to poor watershed planning. The Butterfield Committee hopes
that the waters of our creek will one day bear the positive imprint of our improved planning. For
further information, contact Peggy A. Glassford, (708) 798-2300 or Ralph Coglianese, (708) 481-8373.
Success Stories 12
SinmnoNs YOU WILL FACE
AFTER A RooD
"The wake of a flood is a traumatic time and the easy thing to do is to rush in
and fix what's been destroyed. We've learned that this is the time to ask if rushing to
rebuild is just reinvesting in a future disaster and causing other long-term
problems." — Terry Young, former Mayor, Tulsa, Oklahoma
Your job after a flood will be far easier if your community has pay-off will be lives saved and property preserved.
undertaken both emergency preparedness and mitigation
planning before the flood. Without such planning, very little
gets done immediately after a flood. Emotions run too high.
At this time you have two prin
responsibilities as a local official:
• Directing the immediate use of
your community's resources to
deal with the emergency; and
• Directing your community's
longer -term recovery effort.
EMERGENCY RESPONSE At the .
and county levels of government, e.�..«u viiik-ialD
play key roles in an emergency. The public expects its
elected officials to show up and take charge. If your
community is flooded, you and other local officials must
MITIGATION After the immediate flood emergency
has passed, you face a number of other tasks that should
mitigate (reduce or eliminate risk)
zst future flood losses:
Learning what caused the flood, who
was affected, and to what extent.
• Dealing with an emotional
citizenry who want answers and
immediate action.
"in
ding out exactly what type of
aid to expect, and when.
• Taking advantage of the "window of opportunity"
to guide redevelopment.
• Leading your community's post -flood efforts.
respond to supply lifesaving operations, restore vital ser- FINDING OUT WHAT HAPPENED First, you need to
vices, and provide for the human needs of the victims. investigate what happened and who was affected. If you
Successful emergency operations are the result of
having been prepared. Experience shows that when
emergency plans and procedures are made, understood,
practiced, and used, reaction times during the emergency
are reduced, coordination is improved, and overall res-
ponse and recovery measures are more effective. The
were involved in the emergency response, then you may
already have much information. If not, then your previ-
ously acquired understanding of your community's flood
problem will greatly help you.
You will also want to know the cause so you can
respond to the public and the media. The state and federal
page 21
YOUR COMMUNITY'S FLOOD -
PLAIN management regulations
probably have specific provisions for
the repair or reconstruction of
buildings that are damaged in a
flood. Most communities use the
National Flood Insurance Program
standard. That is, if a building is
"substantially damaged," (more than
50% of its pre flood market value),
it can only be repaired or rebuilt to
meet the same requirements applied
to new construction in flood hazard
areas. Because very few citizens likely
will be aware of this restriction, you
should immediately see to it that this
information gets out, along with the
fact that they will need a permit for
repair and rebuilding. You should
also be prepared to explain the
community's rationale for having
such measures and the long-term
benefit that they confer on present
and future owners of the property.
agencies that have helped your community in the past can help provide answers to
this and other questions.
DEALING WITH THE EXPECTATIONS OF YOUR CONSTITUENTS After a flood,
be prepared for an emotional citizenry who want something done immediately. The
human tendency is to want to repair the damages and to restore conditions to the
way they were before the flood. People will want to get on with their lives as soon as
possible. They will want you to allow them to do what they want, restore community
services, and provide public assistance for cleanup and recovery. They will probably
demand that you do something to prevent this from happening again.
After a flood, you have to balance a number of conflicting needs.
• How do I support the people who want to restore their lives and businesses as
rapidly as possible and yet not place people back in harm's way?
• How do I restore community services quickly without putting them back in their
at -risk, pre -flood condition and repeat our past mistakes?
Perhaps the most contentious situa-
tion you will face is that involving people
who want to immediately repair or rebuild
their flood -damaged homes or businesses.
In many cases, public safety concerns will
prevent people from re-entering the flooded
area for several days. Even when repairs can begin, people may be surprised to learn
about local permit requirements and ordinances that "restrict" what they can do. Or
they may expect you to waive all such restrictions because of the disaster.
One way to ensure that repair and rebuilding takes place carefully and in accord
with your local regulations is to enact a temporary moratorium on issuing building
permits for repairs or reconstruction after the flood. That way you and other officials
buy valuable time to figure out what course of action the community needs to pre-
vent a return to the status quo. The time required will be far shorter if your commu-
nity has planned in advance for this situation.
OBTAINING OUTSIDE AID Your community will probably need to supplement
its own resources with outside aid in order to recover from a flood. In most cases, a
community does not know exactly what type and amount it can obtain. However,
page 22
residents will expect you to be familiar with the various assistance programs. You WITHOUT A PREVIOUSLY
should also know about the state and federal requirements for obtaining various forms
of flood recovery assistance.
Requests for outside aid are made through the state emergency management
agency. The state may supply additional resources itself and/or coordinate a request
for federal aid. If a major flood has occurred, the governor can request a federal
disaster declaration. The federal govern-
ment, in turn, has three options. It could
• Issue a disaster declaration, which would
make the resources of several dozen
programs available to help your com-
munity recover from the disaster.
• Issue an emergency declaration, which provides assistance in the event of a
short-term emergency.
• Provide direct assistance from various federal agencies through their own
programs.
Most local officials who have had experiences with floods recommend figuring
prepared post flood mitigation plan,
your community will probably
"recover" from the flood by restoring
the affected area to pre flood
conditions. Unfortunately, it will
then simply await the next flood,
which will have similar results.
Then the cycle will be repeated,
out what aid you might qualify for before a flood — that is, while you are formulat-
ing your emergency preparedness "Any great disaster or problem usually produces a by-product called
and mitigation plans. Start with the
'opportunity.' This is no less true today as we review our policies for
Digest of Federal Disaster Assistance,
published by the Federal Emergency managing floodplains." — Honorable Jim Edgar, Governor of Illinois
Management Agency (FEMA). The National Governors Association and FEMA have
another publication, National Emergency Assistance Programs. Your state emergency
management agency will know how to get copies for you.
LEADING YOUR COMMUNITY'S POST -FLOOD EFFORTS The perfect time to
make sure that flood damage does not occur again is before repairs or reconstruction
of flood -damaged structures begin. But quickly putting everything back the way it
was will only condemn your community to repeat the cycle. The best approach is a
rational one that strives for long-term reductions in flood risk. This is the time to
implement appropriate steps from your community mitigation plan, or to develop
your own really innovative approaches to reduce future flood risk. If you and your
professional staff have done your homework, you will be able to offer appropriate
page 23
THE AVERAGE LENGTH of a
Small Business Administration
disaster home loan is 18.5 years.
For this period, the average monthly
loan payment is $140. Depending
on the location, a flood insurance
policy can be purchased for the
equivalent of about $12 a month.
recommendations when the opportunity arises.
This so-called "mitigation' approach involves sustained action to reduce or elimi-
nate long-term risk to people and property from flood hazards. Some of the most
successful mitigation measures are
• purchasing damaged structures and removing them from the floodplain
• building codes that specify flood -resistant construction techniques
• land use controls that guide development to safe areas
• public awareness campaigns
• elevating or floodproofing existing buildings
• setting up water retention, stormwater, or diversion measures.
"The [19791 buyout was the hardest thing we did in Kampsville
but now I see it was the best thing we ever did." — Mayor,
Kampsville, Illinois [The city suffered much less damage from the
1993 floods than neighboring communities did.]
There is a broad range of technical
and financial assistance available for
undertaking mitigation measures.
Some of the grant and cost -sharing
programs do require that you have
an already -prepared mitigation plan and likely require that the community partici-
pates in the National Flood Insurance Program. This is another good reason for
thinking about a post -disaster scenario before a drop of rain has fallen.
page 24
REsouRCES You CAN USE To
COPE WITH RoomNG
"The way flooding has been handled in the past has been too costly and repetitive.
Money from higher levels of government is going to be less accessible so therefore,
we must work together and come up with proactive solutions." — Beverly Anderson,
Mayor, Darlington, Wisconsin
Your community's flood problems and its other needs are EXISTING OPERATIONS Your present staff may be able
unique. Only you can know how much and what kind of to carry out a number of measures including drafting ordi-
financial, technical, and personnel support will be needed nance provisions, preparing public information programs,
to minimize disruption from flooding and manage your
floodplains to meet other community goals. However,
whatever you do, it will likely requ
(1) allocation or reallocation of local
resources, (2) careful administration
and continuing public support for
their use, (3) outside sources of
assistance, and (4) learning from
other communities' experience.
LOCAL RESOURCES As an elected
cial, you have the authority and responsibility to
allocate community resources among competing interests
and needs for the overall benefit of your constituents.
When it comes to dealing with your community's flood
problems, this includes identifying sources of local sup-
port of all kinds. Assess your resources. Do not overlook
unusual sources of expertise or personnel, like volunteer
groups, retired citizens, students, and business or profes-
sional organizations.
and providing advice to floodplain residents.
SPECIFIC PROJECTS OR BUDGET ITEMS More exten-
ts, such as clearing debris and
er obstructions from the community's
streams and other water -courses
and restoring them to their natural
condition, may require a special
budget item. Or you may need to
ganize a community -wide effort
lunteer assistance.
rXuuiiivi14rML FUNDING (BOND ISSUE,
SPECIAL ASSESSMENT, SPECIAL SERVICE DISTRICT, ETC.)
Larger projects, such as establishment or improvement of
a local flood warning and response system, may require
creating funding arrangements like a special assessment,
so that beneficiaries contribute proportionally to the cost.
Appropriate resources should be allocated or reallo-
cated to carry out selected measures within a designated
time frame. It may take several years to accomplish some
Among the possibilities are the following.
tasks, either because of their complexity or because only
page 25
limited resources are available. In these situations, you will need to make long-term
plans for the continuity of the effort and for future budgets.
Be ready to answer questions like these:
• Why are local funds being spent to correct flood problems when we have so
many other, higher priorities?
"The rainfalls everywhere. Everyone contributes,
• What other community programs
pays, and benefits." — Ann Patton, Manager, Community will have to be reduced or elimi-
Affairs and Planning, Tulsa, Oklahoma nated to pay for this program?
• Why should all of us have higher taxes, when only those people near the river
need flood protection?
It is obvious that the more support you have built, the easier it will be to justify
using local resources. When individuals and organizations with diverse concerns
and agendas already know how they will benefit from various floodplain measures,
your support is broadened, and your task simplified.
PROGRAM MANAGEMENT Program management means finding and assigning
sufficient resources to accomplish your community's goals, and also continually
"Show support for floodplain management toward your monitoring progress.
constituents, other local officials and your staff." — David Johnson, DIRECTION Responsibility for
Manager, Flood Control District of Maricopa County, Arizona implementing a given measure can
be assigned to an individual or to a specific department or office. Private groups
may volunteer for or be persuaded to undertake a given project. This includes the
establishment of timeframes for action.
OVERSIGHT After the initial assignment or commitment, you should support your
professional staff and volunteer colleagues in their efforts.
VISIBILITY As a community leader, you need to keep the spotlight on the identi-
fied flood -related problems and opportunities. Make sure they are not overlooked
by any relevant department or office — community planning, emergency services,
zoning, public service, and economic growth, for example. Remind other elected
officials of their importance, too.
BUDGETS You need to ensure that the community's annual budget always includes
funding to implement previously adopted long-term measures. This includes com-
p age 26
mitments the community has made to cost -share, maintain, operate, repair, or other-
wise bear the burden for activities that may have been undertaken with outside
assistance. Don't forget those agreements that were made before you took office.
OUTSIDE RESOURCES USING OUTSIDE RESOURCES Outside assistance can
help alleviate some of the burdens of cost, expertise, and personnel. Some state and
federal agencies provide advice and „ ,
In dry years, both financial and precipitation, its very
guidance, some can help fund cer-
tempting to cut emergency management. Don't do it!"
-
tain activities, and some do both. In
many instances they can offer infor- Gussie MCRobert, Mayor, Gresham, Oregon
mation, data, and expertise that may not be available locally. They can also help
interpret and effectively utilize data that are in the hands of local officials. Securing
a major portion of the costs from outside sources can increase the likelihood of sup-
port from other officials and the public.
Do not overlook the private sector. Commercial and industrial concerns and
nonprofit organizations may be willing to
join local efforts. The publicity generated
by such cooperative efforts can be a strong
incentive for private participation.
Really capital -intensive efforts, such as
public acquisition of a frequently flooded
subdivision, relocating the residents, or constructing a levee, will almost certainly
require outside funding from state and federal programs or other sources.
SECURING OUTSIDE RESOURCES Your community is more likely to be successful
at obtaining outside assistance if it understands government regulations and the
various funding programs and their access criteria. Most agencies have rules and
conditions for securing assistance and funding. Keep in touch with governmental
agencies and staffs to stay current on this information. Many regional planning
commissions specialize in grant preparation and can be valuable resources for
developing this understanding.
It will help greatly if you
• Are familiar with sources of assistance and their principal criteria.
• Understand how programs can be packaged to use local and outside cost -sharing.
• Maintain constant contact with outside organizations and agencies.
page 27
ASSISTANCE PROGRAMS
• Understand your community's obligations and the long-term commitments of
accepting assistance under certain programs. These rules and conditions should
be thoroughly shared with the public, particularly the stakeholders.
USING THE EXPERIENCES OF OTHERS One of the best things you can do is to talk
to officials from other communities to see what they did — both communities that did
not wait for a flood to happen and communities that have already had floods. What
types of assistance did they need and how did they get it?
Read the "Success Stories" of other communities in the center section of this
guidebook. In it, local officials like you tell how they put together assistance and
funding packages to reach their community goals.
page 29
ANNOTATED BIBLIOGRAPHY
USING MULTI -OBJECTIVE MANAGEMENT TO REDUCE in flood hazard areas, but they can be incorporated into the
FLOOD LOSSES IN YOUR WATERSHED A guidebook
that explains, in some detail, how to utilize the multi -objec-
tive management approach to reduce flood losses and
address other community concerns. Coordination of flood
loss reduction with other goals and needs of the community
to develop a stronger, more comprehensive local program is
demonstrated. Prepared by the Association of State Flood —
plain Managers for the U.S. Environmental Protection
Agency, Washington, D.C., 1996. 73 pp., including
appendices. Available from the EPA, 1-800-832-7828.
PROTECTING FLOODPLAIN RESOURCES: A GUIDE-
BOOK FOR COMMUNITIES Aguidebook that provides
relevant information for local officials, citizens, landowners,
and groups interested in protecting and restoring the
natural resources and functions of floodplains. It focuses
on local "grass roots" efforts needed to effectively manage
and protect the natural resources of the floodplain environ-
ment, including wetlands, riparian habitats, historic sites,
and aesthetic amenities. Well illustrated. Prepared by
the Federal Interagency Floodplain Management Task
Force, Washington, D.C.,1995.41 pp. FEMA 268. Available
from the Federal Emergency Management Agency,
1-800-480-2520.
FLOOD PROOFING TECHNIQUES, PROGRAMS, AND
REFERENCES A report intended to assist in understanding
and using floodproofing techniques to reduce the likelihood
of future flood damage to buildings and their contents. Such
techniques are typically applied to existing structures located
design and construction of new buildings. It also provides
information on government agencies that offer such assis-
tance. Prepared by the U.S. Army Corps of Engineers,
Washington, D.C., 1996. 25pp. Available from Corps
division or district offices or telephone (202) 761-0169.
REPORT ON COSTS AND BENEFITS OF NATURAL
HAZARD MITIGATION Presents 16 case studies on
various mitigation measures. For each, the mitigation
measure is described and the anticipated, or realized,
direct and indirect benefits are identified. The case studies
demonstrate that mitigation is a cost-effective means of
limiting the damage that can result from natural hazards
and the costs individuals, businesses, and governments
must pay in recovering from these events. Prepared by
the Federal Emergency Management Agency, Mitigation
Directorate, Washington, D.C., 1997. 50 pp. FEMA 294.
Available from FEMA, 1-800-480-2520.
page 30
APPENDIX A: OUTSIDE SOURCES
OF ASSISTANCE
STATE Most states have floodplain management assis-
Kentucky
(502) 564-3410
tance programs consisting of services offered by different
Louisiana
(504) 379-1432
Maine
(207) 287-8063
agencies and other entities within the state. The central
Maryland
(301) 974-3825
agency is usually the one that has been designated by
Massachusetts
(617) 727-3267
the governor to coordinate the National Flood Insurance
Michigan
(517) 335-3182
Minnesota
(612) 296-9226
Program for the state — probably the department for
Mississippi
(601) 960-9980
natural resources, water resources, or environmental pro-
Missouri
(314) 526-9103
tection, but it may be housed in an emergency prepared-
Montana
(406) 444-6654
ness agency or elsewhere. This agency is a good source of
Nebraska
(402) 471-2081
Nevada
(702) 885-4240
information not only about its own services, but also on
New Hampshire
(603) 271-2231
the assistance that can be obtained from other state, federal,
New Jersey
(609) 292-2296
and regional entities. It may also be able to provide some
New Mexico
(505) 827-6140
contacts for assistance offered by the private sector. It
New York
(518) 457-3157
North Carolina
(919) 733-3867
should be the first point of contact for a community
North Dakota
(701) 224-4898
seeking outside assistance.
Ohio
(614) 265-6755
Alabama (205) 242-5503
Oklahoma
(405) 525-4747
Alaska (907) 269-4567
Oregon
(503) 378-2332
Arizona (602) 417-2445
Pennsylvania
(717) 787-7403
Arkansas (501) 682-3982
Puerto Rico
(809) 727-4444
California (916) 653-4393
Rhode Island
(401) 277-6478
Colorado (303) 866-3441
South Carolina
(803) 734-9120
Connecticut (203) 424-3706
South Dakota
(605) 773-3231
Delaware (302) 736-4411
Tennessee
(615) 741-2211
District of Columbia (202) 727-7577
Texas
(512) 371-6317
Florida (904) 413-9960
Utah
(801) 538-3400
Georgia (404) 656-3500
Vermont
(802) 244-6951
Guam 11-671-411-7567
Virgin Islands
(809) 774-3320
Hawaii (808) 587-0222
Virginia
(804) 786-2064
Idaho (208) 327-7993
Washington
(360) 407-6796
Illinois (217) 782-3862
West Virginia
(304) 348-5380
Indiana (317) 232-4178
Wisconsin
(608) 266-1926
Iowa (515) 281-8942
Wyoming
(307) 777-7566
Kansas (913) 296-2933
page 31
REGIONAL PLANNING AGENCIES, COUNTY OR
REGIONAL FLOOD CONTROL DISTRICTS, AND
OTHER SPECIAL DISTRICTS These agencies and
districts have been created by legislative bodies in many
parts of the country to carry out specific responsibilities,
typically to assist local governments in multi -jurisdiction
planning and problem resolution. These organizations
often have full-time staff who have developed consider-
able expertise and insight to assist localities in planning
in a multi -jurisdictional environment, in the design of
desired measures, and in securing or providing funds for
their implementation.
If` PRIVATE The private sector is often overlooked as a
source of assistance for planning and carrying out flood -
plain -related measures. Private organizations often can
marshall needed community involvement and support,
provide information and special expertise or insight, and
!I
help secure funding for certain activities.
II!, • Nonprofit organizations like The Nature Conservancy
and the National Audubon Society. They operate
throughout the United States to acquire and preserve
sensitive natural areas. Much of the land targeted by
these groups is wetland or has some water access,
g P
including much flood lain land. Alon these lines
g
I'
Ducks Unlimited has programs to preserve wetlands
as waterfowl breeding areas. The Nature Conser-
vancy also has an extensive data base on local natural
resources.
• Land trusts that operate at the municipal, regional, or
state level. These organizations preserve land for its
natural, recreational, scenic, historical, or productive
value. Their numbers have increased over ten -fold
in the past three decades. The Trust for Public Land,
a national land trust, has assisted in the acquisition
of critical areas.
• Other conservation organizations like the Sierra Club,
the Izaak Walton League, and the National Wildlife
Federation. They are involved in a myriad of activities
relating to land use and resource conservation.
• Foundations that provide financial support for
projects or programs they deem worthwhile and
within their area of interest.
• Organizations that provide flood relief and recovery
assistance, such as the American Red Cross and a
number of church -sponsored affiliates.
• Historical preservation societies whose members
are interested in preserving community heritage.
• Kiwanis, Lions, Rotary, and other service clubs,
which can help build community support, provide
resources, and foster business involvement.
• Local groups, organizations, and those interested in
a particular purpose or activity such as nature study,
conservation, hunting, and fishing. Besides public
involvement, they can also render expertise and
resources.
• Boy and Girl Scout troops that can benefit from
involvement in community projects like a stream or
bank cleanup.
• Church groups that can adopt neighborhood or com-
munity projects.
• Businesses and corporations that can render support,
provide resources, donate lands, materials and equip-
ment, and adopt projects.
FEDERAL These descriptions of assistance were prepared
by the respective agencies:
THE NATIONAL PARK SERVICE, U.S. DEPARTMENT
OF THE INTERIOR The Rivers, Trails and Conservation
page 32
Assistance (RTCA) Program of the National Park Service technical assistance before the flood and emergency
is helping to bring quality nature -based recreation
opportunities to people where they live and work. RTCA
becomes involved when formally asked by landowners,
local officials, and citizens who share the desire to con -
support during and after the flood.
PROJECTS include structural measures such as dams,
channel modifications, and levees, as well as nonstruc-
tural measures such as floodproofing, flood warning/
serve and enhance close -to -home rivers, trails, and open preparedness, permanent evacuation, and preservation
spaces in their communities. All projects are founded on
cost -sharing, cooperation, and community initiative.
Technical assistance is offered to help plan greenways;
turn abandoned rail lines into trails; establish organiza-
tions to protect rivers or other special places; mitigate the
effects of hydroelectric dams through the federal dam
licensing process; revitalize urban waterfronts; protect
and promote local heritage; plan bikeways; promote
"water trails" for canoes and other small boats; and
reduce flood losses without damaging the natural func-
tions of floodplains.
ASSISTANCE: Technical assistance for planning, pub-
lic participation, and identifying funding.
WHO IS ELIGIBLE: State and local agencies and non-
profit organizations.
PROVISIONS: All projects must involve cost -sharing,
cooperation, community initiative, and conservation
objectives. No grants or direct funding is provided
through this program.
WHO TO CONTACT: Rivers, Trails and Conservation
Assistance Program, National Park Service, P.O. Box
37127, Washington, D.C. 20013, (202) 565-1200.
U.S. ARMY CORPS OF ENGINEERS The Corps of
Engineers has several programs that help communities
deal with floods and flood -related problems before, dur-
ing, and after a flood. The assistance is in the form of flood
damage reduction and ecosystem restoration projects and
of open space. They must be justified, i.e., the benefits
exceed the costs, and cost shared by a local sponsor
(state and/or community). Cost sharing for all projects
(structural, nonstructural, and hurricane/storm damage
reduction) is 35% from local sponsors, including 5% cash.
As a part of their share of the costs, the local sponsors
must provide lands, easements, rights -of -way, relocation
and disposal sites, and maintain the project after it is
completed. Larger projects require Congressional approval
while smaller projects are often implemented under the
Corps' Continuing Authorities Program.
TECHNICAL ASSISTANCE is provided through the
Flood Plain Management Services (FPMS) Program and
the Planning Assistance to States (PAS) Program to help
communities develop their own plans and initiate their
own actions. Upon request and free of charge, the FPMS
Program provides the full range of technical services and
planning guidance needed for floodplain management.
This can vary from site -specific data that can be furnished
in one day or less to larger, community -wide comprehen-
sive floodplain management plans that can take up to a
year to complete. The PAS Program also, upon request,
can provide similar assistance but it is cost -shared with
the local sponsor paying 50% and limited to $500,000 in
a single state in any one year.
EMERGENCY SUPPORT is provided to augment state
and community lifesaving or life protecting efforts during
and after a major or catastrophic flood disaster. This sup -
page 33
port is provided only after the state and community have
exhausted their resources. During the flood, it includes
advice on flood emergency preparations, personnel and
reduce future loss of life and property due to natural
disasters and to enable mitigation measures to be imple-
mented during immediate recovery from a disaster. A
materials for flood fighting, search and rescue operations, local government must apply for the HMGP through the
emergency repairs to flood damage reduction projects,
and emergency supply of clean drinking water where
sources are contaminated. After the flood, it includes
state, because the state is responsible for administering
the program. FEMA can fund up to 75% of the eligible
costs of each project and the state or local match does
debris clearance and temporary construction of emergency not need to be cash; in -kind services or materials may be
access routes such as streets, roads, bridges, airfields, and used. Applicants should contact their State Hazard Mitigation
any other facilities necessary for passage of rescue per-
sonnel; emergency restoration of critical public services
Officers for specific details.
THE FLOOD MITIGATION ASSISTANCE PROGRAM
and facilities for water supply, electric power, and fire- (FMA) will provide grants to state and local govern -
fighting; and technical assistance and damage assessment, ments for planning assistance and projects that reduce the
including safety inspection and stabilization or demolition
of damaged structures.
risk of future flood damages, such as elevating homes,
conversion of property to open space, or minor drainage
The Corps also, upon request, will rehabilitate pub- improvements. This program is available starting in 1997.
licly sponsored flood damage reduction projects. The
rehabilitation is limited to repair or restoration to pre -
disaster conditions and must be justified with the local
sponsor providing 20% of the total costs.
WHO TO CONTACT. the Flood Plain Management
Services Program Manager at your local Corps division
or district office. If you do not know how to reach them,
write to HQUSACE, ATTN: CECW-PF, Washington, D.C.
20314, or phone (202) 761-0169.
FEDERAL EMERGENCY MANAGEMENT AGENCY
(FEMA) FEMA administers two programs that can
provide funds to local communities to implement mea-
sures to prevent future damage from natural hazards.
THE HAZARD MITIGATION GRANT PROGRAM
provides grants to states and local governments to imple-
ment long-term hazard mitigation measures after a major
disaster declaration. The purpose of the program is to
WHO TO CONTACT: Region I (Boston) (617) 223-9540;
Region II (New York) (212) 225-7209; Region III
(Philadelphia) (215) 931-5500; Region IV (Atlanta)
(770) 220-4260; Region V (Chicago) (312) 408-5500;
Region VI (Denton, TX) (940) 898-5399; Region VII
(Kansas City, MO) (816) 283-7061; Region VIII (Denver)
(303) 235-4800; Region IX (San Francisco) (415) 923-7100;
Region X (Bothell, WA) (425) 487-8800.
U.S. DEPARTMENT OF AGRICULTURE The U.S.
Department of Agriculture (USDA) offers landowners
financial, technical, and educational assistance to imple-
ment conservation practices on privately owned land.
With the help offered by USDA, farmers and ranchers can
carry out land management practices that reduce soil
erosion, improve water quality, and enhance forest land,
wetlands, and wildlife habitat. Incentives offered by
USDA agencies promote sustainable agricultural practices,
page 34
which protect and conserve valuable farmland for future to producers with contract acreage on a farm with land
generations. USDA assistance also helps individuals and that is frequently flooded. The payment will equal 95% of
communities restore natural resources after floods, fires, 7-year market transition payments, and other payments
other natural disasters.
The following cost -share programs are managed by
USDA's Farm Service Agency and Natural Resources
to offset estimated federal outlays on frequently flooded
land. In return, the producer agrees to comply with
applicable wetlands and highly erodible land require -
Conservation Service. For details, contact the local USDA ments and to forego commodity loans, crop insurance,
Service Center. conservation program payments, and disaster payments.
EMERGENCY CONSERVATION PROGRAM (ECP) SMALL WATERSHED PROGRAM assists farmers and
provides financial assistance to farmers and ranchers for small communities by solving natural resource and related
restoring farmland damaged seriously enough by natural
disasters to impede normal farming operations. ECP
also helps with funds for carrying out emergency water
conservation measures during periods of severe drought.
Emergency conservation assistance is available for remov-
ing debris and restoring permanent fences, dams, ponds,
irrigation systems, and other installations. Conservation
problems that existed before a disaster are not eligible.
EMERGENCY WATERSHED PROTECTION PROGRAM
economic problems on a watershed basis. Participants
must have a government sponsor. Projects include water-
shed protection, flood prevention, erosion and sediment
control, water supply, fish and wildlife habitat enhance-
ment, wetlands creation and restoration, and public
recreation in watersheds of 250,000 or fewer acres. Cost
sharing is paid to establish structural and management
practices that protect watersheds, prevent floods, control
erosion and sediment, improve water quality, and create
(EWP) is designed to reduce threats to life and property or improve water supplies, wildlife habitat, wetlands,
in communities ravaged by natural disasters. It provides
technical assistance and cost sharing to restore watersheds.
Assistance includes installing or repairing conservation
measures that prevent flooding and soil erosion. Measures
include establishing vegetative cover, gully control, and
streambank protection devices; removal of debris and
sediment from channels; and repairing existing water
control structures. In subsequent storms, EWP projects
protect homes, businesses, highways, and public works
from further damage. In addition, the Secretary of
Agriculture may purchase floodplain easements under EWP.
FLOOD RISK REDUCTION PROGRAM authorizes
voluntary contracts that provide one lump -sum payment
and public recreation.
SEVERAL OTHER AGENCIES also provide assistance to
localities for flooding and floodplain management. They
include:
• U.S. Department of Commerce, National Weather Service
• U.S. Environmental Protection Agency
• U.S. Department of Housing and Urban Development.
You may contact the local, state, or regional office of these
agencies to determine the types of assistance they may be
able to offer your community.
page 35
APPENDIX B: MEASURES THAT CAN BE EMPLOYED
AT THE LOCAL LEVEL TO REDUCE FLOOD LOSSES
1. MEASURES TO PREVENT AN INCREASE IN FLOOD
LOSSES BY MANAGING NEW DEVELOPMENT.
FLOODPLAIN REGULATIONS
• Zoning ordinances control further development in
2. MEASURES TO REDUCE THE EXPOSURE OF
EXISTING DEVELOPMENT TO FLOOD RISK.
DISASTER PREPAREDNESS Preparedness plans and
programs provide for pre -disaster mitigation, warning,
known flood hazard areas by preventing structures and emergency operations. The success of such planning
from obstructing flow in the floodway and requiring depends largely on the degree to which individuals and
that construction permitted in other areas be protected local governments protect themselves by taking appropriate
from flood losses.
• Subdivision regulations require that flood hazards be
overcome in the subdivision of land for sale or building
development.
hazard mitigation measures to reduce their exposure to
flood risk.
ACQUISITION AND RELOCATION These activities
may be part of redevelopment or urban renewal or a
• Building codes establish specifications for construction separate project that provides for removal of structures
in flood hazard areas to minimize flood damages.
DEVELOPMENT AND REDEVELOPMENT POLICIES
and facilities, particularly from the floodway and perilous
flood -prone areas, leaving them free for non -damaging
Other public actions can guide development to allow for open space uses. After a flood, the acquisition of heavily
the flood hazard and the natural characteristics of the
floodplain. They may be applied through the design and
location of utilities and services to serve low -risk or
flood -free areas, through policies of open space acquisi-
tion and easement, and through redevelopment or per-
manent evacuation. Another essential policy is to require
adequate detention of stormwater runoff in developing
areas to prevent flooding from becoming worse.
INFORMATION AND EDUCATION Flood hazard
information is vital if informed floodplain management
decisions are to be made by officials, professional staffs,
and affected individuals. It is important that all stake-
holders understand the nature of the flood risk in terms
of flood levels, hazards, and impacts in a specific area.
damaged structures is often practical.
FLOOD FORECASTING AND WARNING SYSTEMS AND
EMERGENCY PLANS Flood forecasting systems provide
information on the time of occurrence and magnitude of
flooding expected along rivers and streams. Flood warn-
ings can be issued and emergency protective measures
undertaken by individuals and the community. The effec-
tiveness of such systems depends both on the time avail-
able and on having a local emergency action plan in place
before a flood occurs.
FLOOD INSURANCE Under the National Flood
Insurance Program, flood insurance is available to prop-
erty owners and renters in communities that participate
in the program. To become and remain eligible to partici-
page 36
pate, communities must agree to enact and enforce flood -
plain management regulations consistent with the pro-
gram requirements. Because of the benefits to its citizens,
and the effects of non -participation, most flood -prone
localities are participating in the program.
INFORMATION AND EDUCATION Flood hazard
information may be used in addressing existing flood
problems. It is vital in the formulation of alternative
flood protective measures by both government and
individual decisionmakers. Information on properties
subject to flood risk and probabilities of various levels
of loss can help translate the hazard into terms -that
stimulate appropriate local action.
INDIVIDUAL PROTECTIVE MEASURES A number of
measures can be employed by individuals to keep flood
damage within acceptable limits. Those most frequently
used include:
• raising structures in place to above expected flood
levels
• constructing small walls or levees around structures
• modifying structures to keep water out
• relocating some contents above expected flood levels
to reduce the effects of water entering the building.
Such measures can be undertaken during repair, re-
modeling, or expansion of existing structures.
STRUCTURAL MEASURES TO CONTAIN OR CONFINE
FLOOD WATERS The most commonly used flood protec-
tion structures include
• flood water detention dams and reservoirs
• levees, floodwalls, and dikes that protect areas
behind them from certain levels of flooding
• channel alterations that confine more water to the
channel and accelerate flood flows
• onsite detention measures that provide temporary
storage of stormwater runoff.
3. MEASURES TO PRESERVE AND RESTORE THE
NATURAL RESOURCES AND FUNCTIONS OF FLOOD -
PLAINS.
The importance of working with, and effectively
utilizing, the floodplain's natural functions and resources
cannot be overstated. Through natural resource planning,
a number of community goals, including flood loss
reduction, often can be achieved at a substantially reduced
overall cost. Retaining the natural resources and functions
of floodplains can not only help communities to reduce
the frequency and consequences of flooding, but also
minimize stormwater management and nonpoint
pollution problems, and for less money than building
facilities to correct them.
Traditionally, although much attention has been
focused on the hazards and inconveniences associated
with floods, less attention has been directed toward the
natural resources and functions of floodplains and their
considerable value to the community. Among the benefits
they provide are natural storage of flood waters, open
space and recreation, water quality protection, erosion
control, and preservation of natural habitats. But lack of
attention and misunderstanding of their functions have
led to their alteration and in many cases to the degrada-
tion and destruction of their natural resources.
Measures for preserving floodplain resources and
functions involve preventing the alteration of the natural
and beneficial resources or maintaining the floodplain
environment as close to its natural state as possible. The
measures that can be employed include:
page 37
• floodplain regulations to control or prohibit develop-
ment that will significantly alter natural resources
• development and redevelopment policies focused on
resource protection
• information and education for both community and
individual decisionmakers
• review of community programs to identify opportu-
nities for floodplain preservation.
Measures for restoring diminished or destroyed
resources and functions provide for re-establishment of
an environment in which these functions can again
operate. Measures that can be used involve improving
the natural condition of areas or restoring them to their
previous natural state. These could include:
• land reuse policies focused on resource restoration
• information and education on needs and processes
• review of community programs to identify opportu-
nities for floodplain restoration.
page 38
CHECKLIST FOR ADDRESSING YOUR
CommuNny5 FLOOD PROBLEMS
ACTION ITEM YOUR TYME FRAME FOR COMPLETION
3 6 12 24 36 MONTHS
Investigate your community's flood risk
(read newspapers, review studies) O O O O O
Visit areas subject to flooding, talk to residents O O O O O
Learn about the natural functions and
resources of your community's floodplains
O
O
O
O
O
Investigate what your community has already
done to minimize the consequences of future floods
O
O
O
O
O
Take inventory of responsibilities of the various
departments of your local government for
flood -related tasks
O
O
O
O
O
Identify which state, regional, and federal
agencies have helped with flood -related activities
O
O
O
O
O
Talk to officials in other communities to see what they did
O
O
O
O
O
Investigate ways to meet other community interests,
needs, and concerns while working on floodplain issues
O
O
O
O
O
Lead consensus -building on setting
community goals and objectives
O
O
O
O
O
Lead consensus -building on ways to reach community
goals and objectives while dealing with flooding
O
O
O
O
O
Establish cooperative arrangements with adjoining
communities to address contributing problems
O
O
O
O
O
Investigate ways to obtain outside assistance
O
O
O
O
O
Make a personal commitment to your
community's floodplain management effort
0
0
0
0
0
AcTION ITEM
Take official action to adopt a program
Allocate sufficient resources to carry out
the adopted program or activity
Ensure that the community's annual budget
includes funding for continuous implementation
of adopted long-term measures
Identify an easy win -win project and do
it quickly
YOUR MME FRAME FOR COMPLETION
3 6 12 24 36
O O O O O
I
N
01
I CREDIT THE SUCCESS of our floodplairi
management program to the very capable
Federal Emergency Management Agency's
National Flood Insurance Program specialists
at Region VIII in Denver, Colorado, for their
expert guidance; the developers who showed
a genuine concern for their future tenants
and residents; and, most of all, the Board of
Union County Commissioners, who stood
behind their ordinance, often at very tenuous
times, to the betterment of Union County. By
adhering to their ordinance, not only did they
save countless dollars in potential disaster
response and recovery operations, but they
also mitigated the threat to human safety
during these operations. This is truly a success
story. John LaBrune, former Floodplain Manager,
Union County, South Dakota
lei,,w..
ASSOCIATION OF
STATE FLOODPLAIN
MANAGERS, INC.
41 i,FEDERAL
�_'.
FLOODPLAIN
MANAGEMENT
TASK FORCE
A
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