FLOOD MAP MODERNIZATION STATE BUSINESS PLAN

Transcription

1 CALIFORNIA DEPARTMENT OF WATER RESOURCES FLOOD MAP MODERNIZATION STATE BUSINESS PLAN Prepared for FEDERAL EMERGENCY MANAGEMENT AGENCY MAY 2004

2 TABLE OF CONTENTS Subject Page EXECUTIVE SUMMARY 1 THE STATE OF CALIFORNIA S VISION FOR FUTURE FLOODPLAIN MAPPING 1 MAPPING BUSINESS PLAN OVERVIEW 1 INTRODUCTION 2 BACKGROUND 2 FLOODPLAIN MANAGEMENT OVERVIEW 2 CURRENT FLOODPLAIN MAPPING SUPPORT 4 NATIONAL FLOOD INSURANCE PROGRAM 5 MAP MODERNIZATION 7 DWR MAPPING PROGRAMS AND NEEDS 9 DETAILED STUDIES 9 U.S. ARMY CORPS OF ENGINEERS FLOODPLAIN MAPPING PROGRAMS 9 AWARENESS FLOODPLAIN MAPPING 9 RECLAMATION BOARD 10 FLOODPLAIN MANAGEMENT TASK FORCE 11 GIS ASSESSMENTS 12 ON-LINE MAPPING 13 SUPPORT FOR THE HAZARD MITIGATION PROGRAM 13 PURSUIT OF OTHER ALTERNATE MAPPING SUPPORT WITHIN THE STATE 13 COMMUNICATIONS 14 MERGING STATE ACTIVITIES 14 THE SACRAMENTO AND SAN JOAQUIN RIVER BASINS COMP STUDY 14 ACTIVITIES NEEDING STATE SUPPORT 15 FLOODPLAIN MANAGEMENT AND MAP MODERNIZATION PROGRAMS 16 HISTORY OF FLOOD HAZARD MAPPING IN THE UNITED STATES 16 DWR FLOODPLAIN MAPPING PROGRAM SUPPORT 17 EXISTING STATE MAP MODERNZATION PLAN 18 HAZARD MITIGATION PLANNING 19 i

3 TABLE OF CONTENTS (Continued) Subject Page FLOOD FORECASTING AND FLOOD WARNING SYSTEMS 20 EMERGENCY MANAGEMENT SYSTEM 21 CALIFORNIA LEGACY PROJECT 21 STATUTORY MANAGEMENT 23 FEDERAL LEGISLATION AND GUIDANCE 23 STATE ENABLING LEGISLATION AND GUIDANCE 24 FLOODPLAIN MAPPING GOALS 25 FEMA BASIC GOALS 25 NATIONAL FIVE-YEAR PLAN 26 CONSENSUS FY03 FACTORS 27 RISK COMMUNICATION 28 STATE IDENTIFIED MAPPING GOALS 28 LOCAL COMMUNITY GOALS 32 PROJECT MANAGEMENT PLANS 33 FEMA S REQUIREMENTS FOR MAPPING PROJECTS 33 STATE MANAGEMENT HIERARCHY 33 PLANNED ACCOMPLISHMENTS 34 MAPPING BUSINESS PLAN TEMPLATE 35 STATE ACTIVITIES 35 COST SHARING REQUIREMENTS 41 STATE FUNDING SUPPORT 41 FEMA S BLUE BOOK 43 ESTIMATION OF COSTS 43 TIERED ACTIVITIES 43 GOALS AND ISSUES MAPPING BUSINESS PLAN IMPLEMENTATION 46 ii

4 TABLE OF CONTENTS (Continued) Subject Page FIGURES Figure 1 Cooperating Technical Community agreement 17 TABLES Table 1 Flood Map Upgrades 26 Table 2 Annual FEMA/DHS Targets for Sub-Program Performance Measures 27 Table 3 California Floodplain Management Task Force Membership List 31 Table 4 Federal Advisory Committee 32 APPENDICIES APPENDIX A Summary of the Technical Mapping Advisory Council s Recommendations to FEMA APPENDIX B Map Modernization Plan for the State of California August 2002 APPENDIX C New Management Tools for the Floodplain Mapping Program APPENDIX D FEMA Blue Book iii

5 EXECUTIVE SUMMARY THE STATE OF CALIFORNIA S VISION FOR FUTURE FLOODPLAIN MAPPING Reduction of flood related losses are paramount for the State of California s economic and social well-being. The Department of Water Resources is an avid supporter of the National Flood Insurance Program and other programs that lead to the identification of potential floodplain areas. The State has invested in this effort by providing funding through the General Fund and State Propositions addressing potential floodplain issues. DWR s cooperation with the Federal Emergency Management Agency in drafting the initial Map Modernization Plan for the State of California is part of the objective in avoiding the consequence of costly and disastrous floods. The formation of this report is one more step in advancing DWR s resolve for preventive floodplain identification and functional use. As always, public safety and economic integrity are the backbone for any floodplain mapping program. DWR has a very proactive stance in addressing floodplain mapping. Detailed studies are fundamental for the complexity of issues affecting urbanized development. The need to identify floodplains for areas not developed is equally important in the avoidance of future flooding problems. However, addressing these concerns is highly dependent on availability of funding for the necessary mapping. Unfortunately, as the NFIP funding future is becoming very bright, all of the State of California budgets are faced with reduction requirements for their programs and funding support. Cooperative management programs will be the key to the success for floodplain mapping. The need for DWR s floodplain mapping programs is fundamental, the intent is clear, the direction is obvious, and the future (with FEMA s endorsement) is now. MAPPING BUSINESS PLAN OVERVIEW This report identifies related processes and programs that affect and are impacted by floodplain mapping for the State of California. Potential management and project activities will be presented for consideration as this formulation process comes together. Subsequently, the information presented in this report will become part of the foundation for formulation of the Flood Map Modernization State Business Plan that will be the guide for the next five years. This Mapping Business Plan is focused on the judicious stewardship of public funding used for the safety and well being of our citizens. good beginnings are not the measure of success. What matters in the end is completion. Performance. Results. Not just making promises, but making good on promises. George W. Bush FLOOD MAP MODERNIZATION STATE BUSINESS PLAN PAGE 1

6 INTRODUCTION BACKGROUND California has been and continues to be susceptible to sustaining damages from natural disasters. One of the most costly disasters that the State must contend with is flooding. In January 1997, California experienced one of the most geographically extensive and costly floods in the State s history. Of the State s 58 counties, 48 were declared disaster areas. Nine people were killed, 120,000 people were evacuated from their homes, and 300 square miles were flooded. Damages approached $2 billion and floods affected over 23,000 homes as well as numerous businesses, agricultural lands, bridges, roads, and floodwater management infrastructures. Estimated indirect costs and costs associated with the disruption of the State s economy exceeded $5 billion. Currently less than 10 percent of California s floodplains have any regulatory mapping issued. The State has over 180,000 miles of streams with most of the existing populace living near or adjacent to these stream systems. California s population of 34 million is forecasted to grow by another 17 million in the next 25 years with most of this development occurring in areas where existing floodplain mapping is not available. In addition, in the Central Valley alone, there are over 6,000 miles of levees providing some level of flood protection along with numerous miles of irrigation canals, transportation systems, and other construction affecting potential floodplain areas. These levee systems are crucial for protection from flooding for a large portion of the State s populace. Floodplain mapping is fundamental for the planning needs for all floodplain management programs in helping to reduce or eliminate flood damages for existing and future development as well as increased public safety. Greater detail concerning levees and floodways or lack of floodways need to be assessed to determine more accurately the requirements for future floodplain mapping projects. A view from the national perspective can readily identify the impact on federal programs from potential flooding faced by the State without proper mitigation and management of flood risks. These include loss of life, property damage losses, emergency services costs, community disruption both short and long term, location of critical facilities, repetitive losses, etc. The need is obvious; the solution is challenging and will be expensive without proper identification and management of the State s floodplains. FLOODPLAIN MANAGEMENT OVERVIEW Federal Government Floodplain management objectives have been supported and pursued by the federal government over the last 40 years, initially through programs by the U.S. Army Corps of Engineers, Soil Conservation Service (now Natural Resources Conservation Service), and Geological Survey. The National Flood Insurance Program, which was initiated FLOOD MAP MODERNIZATION STATE BUSINESS PLAN PAGE 2

7 under the Housing and Urban Development Agency, came to the forefront under the Federal Emergency Management Agency administration. This program has had a major impact in providing sound guidance and regulatory controls in the development of the nation s floodplains. State of California The State s floodplain management programs have always encouraged local governments to develop sound land use practices and to adopt floodplain management regulations to meet at least the minimum federal criteria relative to the National Flood Insurance Program. The Cobey-Alquist Flood Plain Management Act of 1965 provided state level legislation supporting floodplain management planning and guidance. Subsequently, Executive Order B was signed by the Governor requiring state agency compliance with good floodplain management practices. FPM programs are intended to provide assistance to State agencies and local communities in avoiding flood risk and damage. The 1997 Flood Emergency Action Team report emphasized the need for increased support for responsible floodplain management. Senate Bill 4 provided the baseline funding necessary for DWR to establish a statewide program for floodplain mapping. In addition, approval of Proposition 13 augmented and expanded the floodplain mapping/modeling support needed for basic floodplain management applications. In December 2002, the California Floodplain Management Task Force presented its final recommendations for the State to reduce flood losses and maximize the benefits of the floodplains. It is the policy of the State and the intent of the Legislature to protect California's land resource, to insure its preservation and use in ways that are economically and socially desirable in an attempt to improve the quality of life in California. Local Communities Community participation in FEMA s NFIP is voluntary. When a community chooses to join the NFIP, it must adopt and enforce minimum floodplain management standards for participation. FEMA works closely with State and local officials to identify flood hazard areas and flood risks. Floodplain management requirements within the Special Flood Hazard Areas are designed to prevent new development from increasing the flood threat and to protect new and existing buildings from anticipated flood events. Each community must require permits for all development in the SFHA and ensure that construction materials and methods used will minimize future flood damage. Permit files must contain documentation to substantiate how buildings were actually constructed. In return, the Federal Government makes flood insurance available for almost every building and its contents with the community. FLOOD MAP MODERNIZATION STATE BUSINESS PLAN PAGE 3

8 Communities must ensure that their adopted floodplain management ordinance and enforcement procedures meet program requirements. Local regulations must be updated when additional data are provided by FEMA or when Federal or State standards are revised. There are about 520 California communities participating in the NFIP. To assist these communities, the State of California has made available a Model Ordinance for California Communities and an appendix in the State General Plan Guidelines on Floodplain Management. Workshops and technical assistance are also available from the State NFIP Coordinator's office designated within the Department of Water Resources. Twelve percent of the California NFIP communities participate in the Community Rating System Program, resulting in saving about $7.5 Million in Flood Insurance Premiums for those communities. CURRENT FLOODPLAIN MAPPING SUPPORT Quality floodplain mapping is fundamental to quality floodplain management applications. Mapping provides the basis for management decisions that affects the economics of areas developed or expecting development. These decisions, based on structural and/or nonstructural applications, are designed to improve the well being of each citizen and the community as a whole. This state business plan is focused on floodplain management needs integrated with mapping applications. Federal Emergency Management Agency FEMA s NFIP has been the major supplier for floodplain mapping for the State of California. This included both detailed and approximate floodplains used for regulatory mapping. In addition, FEMA supports three mitigation grant programs, which include floodplain assessments as part of the basis for each program. Other Federal Agencies The Corps has long supported floodplain mapping with its Flood Plain Management Services Program and the Planning Assistance to States Program. In addition, through their Civil Works programs, assessments for potential flood control projects has provided valuable floodplain information that is part of the foundation for the State s floodplains. The Natural Resources Conservation Service has always been a proponent for wise use of the floodplains providing important floodplain mapping through its varied programs and the U.S. Geological Survey continues its support documenting flooding throughout the State. State Programs Since 1911, the California Reclamation Board had administered the Central Valley streams floodplain encroachment programs. In 1968, the Reclamation Board FLOOD MAP MODERNIZATION STATE BUSINESS PLAN PAGE 4

9 Designated Floodway Program was initiated. There are approximately 1,300 miles of designated floodways that have been adopted. Following the floods of 1997, the Governor formed the State s Flood Emergency Action Team to evaluate the State s needs for dealing with future flooding events. In support of this effort, Senate Bill 4 was passed in 1997 providing DWR with an annual budget for floodplain mapping studies. Since 1997, DWR has supported the production of detailed floodplain mapping studies. Because the floodplain mapping products were limited due to costs and the need for a greater number of new floodplains was great, Awareness Floodplain Mapping (approximate floodplains) was initiated in 2000, which has become a major program for the State for floodplain map production. In 2002, DWR was authorized to convene a Floodplain Management Task Force. This task force was charged with identifying strategies designed to reduce flood losses and maximize the benefits of the floodplains and to avoid future loss of life. Support for Awareness Floodplain mapping and mapping related needs were integral to the recommendations resulting from this task force. Another recommendation under consideration is the formation of an Alluvial Fan Task Force. This is an important issue for both future detailed and approximate floodplain mapping studies. Local Programs Most communities support the NFIP through their standard regulatory process. Supplemental information from the Reclamation Board may also affect the regulatory procedures used by a community. In addition, as the Awareness Floodplain Mapping comes on-line, each community will have additional nonregulatory floodplain mapping to use that will provide guidance for flood hazard areas not mapped under current regulatory programs. Some communities have requirements that are more stringent then either the NFIP or the Reclamation Board. NATIONAL FLOOD INSURANCE PROGRAM The National Flood Insurance Program is a federal program managed by the Federal Emergency Management Agency in conjunction with the Federal Insurance Administration. Purpose of this Program For many years, the national response to flood disasters was limited to construction of flood control structures and providing disaster assistance. Unfortunately, this did not reduce losses or discourage unwise development in the floodplains. In addition, the public could not buy flood insurance and nonstructural applications were simply overlooked. FLOOD MAP MODERNIZATION STATE BUSINESS PLAN PAGE 5

10 Flood losses and costs for disaster relief were increasing throughout the country because of flooding. The U.S. Congress created the NFIP in 1968 as a program to protect the populace against potential losses and at the same time initiate a process to avoid future losses that would otherwise occur. Nearly 20,000 communities across the country now participate in the program. The Mitigation Division, a component of the Federal Emergency Management Agency (FEMA), manages the National Flood Insurance Program. The three components of the National Flood Insurance Program (NFIP) are: Flood Insurance Floodplain Management Flood Hazard Mapping Flood insurance is designed to provide an alternative to disaster assistance to reduce the escalating costs of repairing damage to buildings and their contents caused by floods. Flood damage is reduced by nearly $1 billion a year through communities implementing sound floodplain management requirements and property owners purchasing of flood insurance. Additionally, buildings constructed in compliance with NFIP building standards suffer approximately 80 percent less damage annually than those not built in compliance. In addition, every $3 paid in flood insurance claims saves $1 in disaster assistance payments. Floodplain management is the operation of a community program of corrective and preventative measures for reducing flood damage. These measures take a variety of forms and generally include zoning, subdivision, or building requirements, and specialpurpose floodplain ordinances. In addition to providing flood insurance and reducing flood damages through floodplain management regulations, the NFIP identifies and maps the nation's floodplains. Mapping flood hazards creates broad-based awareness of the flood hazards and provides the data needed for floodplain management programs and to actuarially rate new construction for flood insurance. The NFIP encompasses other programs including the Community Rating System and mitigation support as well. Mitigation is the cornerstone of emergency management. It is an ongoing effort lessening the impact disasters have on people and property. Mitigation involves keeping homes away from floodplains, assessing other hazards such as earthquakes and fires, creating and enforcing effective building codes to protect property from flooding and more. FEMA currently has three mitigation grant programs: the Hazards Mitigation Grant Program (HGMP), the Pre-Disaster Mitigation program (PDM), and the Flood Mitigation Assistance (FMA) program. MAP MODERNIZATION FLOOD MAP MODERNIZATION STATE BUSINESS PLAN PAGE 6

11 The Map Modernization program is a 5-year program to replace 100,000 flood insurance panels across the nation to a digital format reflecting current development in the floodplains. FEMA has been funded/programmed an additional $150 Million a year for this effort. Although this program was initiated in 2003, it is extended through 2009 due to FEMA s planning and restructuring needs. FEMA s Multi-Hazard Flood Map Modernization effort includes an integrated partnership composed of multiple State agencies, local, and/or tribal agencies/organizations that contribute to or guide the development of projects. The ultimate goal is devolving floodplain mapping to State/local entities with interest and capability. All endeavors connected with FEMA s Multi-Hazard Flood Map Modernization, including the efforts of states and localities, must contribute to achieving the following objectives: 1. Establish and maintain a premier data collection and delivery system: Create a premier, geo-spatial system that provides easy access to reliable flood hazard data, and other information and hazard data to support risk management applications and operations. 2. Achieve effective program management: Develop and provide a continually improving program management structure that motivates partners to share responsibilities and aligns partner missions to reduce the nation s vulnerability to flood and other hazards. 3. Build and maintain mutually beneficial partnerships: Foster mutually beneficial partnerships that achieve shared outcomes through the communication of flood risk and other hazard information and improve the systems that support them. Partnerships will result in enhanced delivery of risk management applications and operations. 4. Expand and better inform the user community: Foster public and stakeholder understanding of where to obtain flood and other hazard data and how to use and analyze it in order to make sound decisions to reduce their vulnerability to natural, and man-made hazards. One of the goals of Map Modernization is to increase ownership of the NFIP by the State and local governments. The Community Assistance Program Cooperative Agreement funding process is the traditional way to develop this capability. Through the CAP-MAP SSSE Grant (now referred to as Map Modernization Management Support), funding has been made available to support the mapping business plan. There are two phases to this process. Phase I is the development of a results-oriented and comprehensive business plan. Phase II is the actual implementation of this business plan. The main intent of the Phase II funding is to provide management support and capability development for activities that facilitate map production. This funding is distinct from the CTP Program funding. The CTP Program is designed to fund projects and the Phase II CAP-MAP SSSE is designed to provide the resources for the activity supporting these projects. FLOOD MAP MODERNIZATION STATE BUSINESS PLAN PAGE 7

12 The 25 percent cost-share requirement for the CAP-SSSE program applies to CAP MAP funding, however, the match is over the life of the agreement and can be in the form of either cash or in-kind contributions. Phase I Phase I of the effort is the Planning Phase. The main component of this phase is the development of a potential multi-year business plan supporting CAP MAP and CTP applications. The federal funding limit for this phase is $30,000 and the timeframe for completion is six months. This report is the product of this effort. Phase II Phase II of the effort is the Implementation Phase of the business plan. The timeframe for completing this phase is 24 months (or longer), however funding limitations have not yet been determined for this activity. These activities include those that support mapping activities but have not been eligible for funding previously. A list of both proposed management support and project activities is provided in the Mapping Business Plan Template section. Activities completed as part of CAP MAP Phase II component are separate from activities completed as part of CTP cooperative agreements. However, the Phase II implementation of the business plan activity and the CTP activities are concurrent processes. The State s business plan also supports Multi-hazard Flood Map Modernization as well as supporting State and/or local/tribal multi-hazard risk assessment and mitigation planning goals and objectives, particularly those that pertain to floodplain management. It includes alternative analyses that define the plan for various funding levels. Management activities presented include communications, technical support, mapping products, and outreach. FLOOD MAP MODERNIZATION STATE BUSINESS PLAN PAGE 8

13 DWR MAPPING PROGRAMS AND NEEDS DETAILED STUDIES In cooperation with FEMA, DWR has made MNUSS data collection a continuous activity, both in support of FEMA data retrieval as well as independent DWR data retrieval. It is recognized that this information is critical in establishing future detailed studies needs. Current mapping oversight support for the Floodplain Mapping Programs includes administration and support for the branch mapping team, mapping specialists, and Web page support, development and maintenance of all communication and coordination functions required with others for DWR mapping activities, administration of contracts, quality control reviews, and investigation into new processes and programs to satisfy evolving mapping product needs. All of these activities are financial commitments to the NFIP mapping program supported by the Floodplain Management Branch. Detailed floodplain mapping support by the State has been provided in a number of areas. Funding for detailed studies has been provided to DWR Districts and the Corps to perform hydraulic studies compatible with FEMA s NFIP criteria. Currently, the State has 10 studies completed or scheduled for completion and eventual use by FEMA, which includes major stream systems such as the Feather River in the Central Valley. Obviously, the Awareness Floodplain Mapping Program is also a major activity within the State. U.S. ARMY CORPS OF ENGINEERS FLOODPLAIN MAPPING PROGRAMS DWR has adopted a formalized procedure (WREM 9a) for addressing future mapping support needs from the Corps using their Floodplain Management Services Program and Planning Assistance to States Program. These programs are crafted using a 2- year in advance planning cycle. As a CTP with FEMA, DWR is responsible for assigning mapping studies throughout the State. These efforts, along with satisfying community needs, have to be coordinated with the Corps programs, as part of the overall mapping program for the State. AWARENESS FLOODPLAIN MAPPING In the last three years, the Department of Water Resources has taken a major step in improving the identification of flood prone areas within the State. This is the State s Awareness Floodplain Mapping Program. This is not a regulatory process as used by the NFIP but rather a planning process providing advisory floodplain mapping so as to avoid unintentional development in flood prone areas simply because these areas had not yet been mapped. It provides the planning tools necessary to help ensure sound floodplain development. Other immediate applications include support for the State s FLOOD MAP MODERNIZATION STATE BUSINESS PLAN PAGE 9

14 development of advisory multi-hazard mapping to be administered by OES under the authority of the Disaster Mitigation Act of The Awareness Floodplain mapping program uses a controlled systematic process to ensure common analytical and mapping standards across the State providing useful mapping and technical support data to the communities. All completed floodplain mapping uses a GIS shape file format with supporting metadata files. This program is expected to complete about 15,000 miles of streams this year. It is estimated that about 50,000 miles of the State s streams will see some encroachment in the next 25 years. The NFIP and the Awareness Floodplain mapping program have mapped about 30,000 miles of streams which leaves the State with about 20,000 miles to be mapped within the next few years. With completion of FEMA s new DFIRM effort these numbers will be updated to reflect the more accurate data that will be available. The floodplains provided under this program are approximate delineations for expected flooding and are considered advisory floodplains, not regulatory floodplains. This mapping program provides a logical transition between the needs for expected development and the needs for protection from flood damage and the loss of life that could otherwise occur. The intent is to provide a heads-up for development being considered in an area not yet assessed for any potential flooding. Any development in or near these flood prone areas will require a more detailed assessment as to the flood risks involved before processing. A new facet to this mapping effort is the use of existing State GIS data to establish a priority of study for Awareness Floodplain Mapping in the State. It should be noted that based on this priority assessment process, the selection of detailed study areas will also be influenced in establishing study priority for the NFIP detailed studies. This has the potential of providing an accurate and balance process to select new study areas for the State and to reduce the overall number of FIS s required for the State. RECLAMATION BOARD The California State Reclamation Board, which was established in 1911, has a jurisdictional area that covers the entire Central Valley, including all tributaries and distributaries of the Sacramento and San Joaquin Rivers and the Tulare and Buena Vista Basins. The Board is responsible for ensuring the integrity and capacity of the flood control system and streams within its jurisdictional area. Since 1911, the Board has been administering an encroachment permit program and has issued over 17,400 permits for allowable activities on levees and floodways. The Board enforces standards and permits using guidelines in Title 23 of the California Code of Regulations. The California State Reclamation Board s Designated Floodway Program began in 1968 and is the State s primary nonstructural floodplain management program. As stated in the California Water Code, the purpose of the program is to control encroachments and to preserve the flow regimes of floodways for the purpose of protecting public FLOOD MAP MODERNIZATION STATE BUSINESS PLAN PAGE 10

15 improvements, lives, land-use values, and improvements created in reliance upon historical flooding patterns. Since the program s inception, the Board has adopted over 1,300 miles of Designated Floodways along streams and rivers within the Central Valley. An encroachment permit from the Board is required for any project within an adopted Designated Floodway. Due to cuts in budget and program funding, no new Designated Floodway has been adopted or updated since Furthermore, many of the existing Designated Floodways may need to be revised due to the availability of new and updated data. FLOODPLAIN MANAGEMENT TASK FORCE In 2000, Governor Gray Davis signed Assembly Bill 1147, which recommended the creation of the California Floodplain Management Task Force. In February 2002, the Governor tasked DWR to convene the Floodplain Management Task Force. It was the intent of the Legislature that the Governor establishes a floodplain management task force with broad membership from the local, state, and federal governments and stakeholders whose issues and floodplain management interests were quite varied. The task force was established with the intent of examining specific issues related to state and local floodplain management, including, but not limited to, features that substantially reduce potential flood damages, and to make recommendations for more effective statewide floodplain management policies. The Task Force sought to recommend floodplain management strategies designed to reduce flood losses and maximize the benefits of floodplains. The Task Force found that existing programs are not adequate to accomplish these goals, and that for many Californians time is of the essence. They moved forward with an understanding that failure to take action may result in loss of life and increased economic, agricultural and property losses, and environmental decline or lack of ecosystem restoration opportunities. The Task Force identified the need for California to comply with the NFIP. It also developed recommendations for improving floodplain management by adopting Best Management Practices and integrating Multi-Objective Management approaches. In developing their recommendations, the Task Force considered an array of previously identified options drawn from 39 reports on the subject, including: the Flood Emergency Action Team Report (FEAT Report); Sharing the Challenge - Floodplain Management into the 21 st Century ( Galloway Report ); as well as government agency publications; books; published papers; internet sites; and specific recommendations from stakeholders. Thirty-eight recommendations then grew from three basic themes: FLOOD MAP MODERNIZATION STATE BUSINESS PLAN PAGE 11

16 Better Understanding and Reducing Risks from Reasonably Foreseeable Flooding Local, State and federal agencies should consider the risk to life and property from reasonably foreseeable floods when making their land use and floodplain management decisions. To do this effectively, decision-makers need better tools and information and specific methods to comply with the NFIP. (14 recommendations) Multi-Objective Management Approach for Floodplains State, local, and federal agencies should implement multi-objective floodplain management on a watershed basis. Where feasible, projects should provide adequate protection for natural, recreational, residential, business, economic, agricultural, and cultural resources, and protect water quality and supply. (13 recommendations) Local Assistance, Funding, and Legislation for Floodplain Management DWR should identify and actively pursue funding opportunities, technical assistance to local governments and other organizations, and legislative proposals to implement Task Force recommendations and ensure successful floodplain management, recognizing that local governments have the primary responsibility and authority for land use decisions. (11 recommendations) The Task Force worked with conflicting interests developing consensus recommendations. Due to the nature and format of the Task Force and the numerous issues related to floodplain management, it was not reasonably possible to form recommendations on all of the issues discussed and presented by the Task Force members. Some remaining issues include coastal floodplain management, State insurance requirements beyond NFIP, floodwater management, floodwater storage, lifecycle costing, mapping levee flood risks, disclosure and map availability, actions to conserve rural floodplains, urbanization of the floodplains, benefits and risks to floodplains from structural flood control; and the methods needed to address adverse impacts to adjacent properties. GIS ASSESSMENTS DWR has developed a GIS application for assigning and prioritizing new mapping requirements for awareness floodplains. This process takes into account all stream systems, current mapping status, community-identified mapping needs, growth potential, proximity to population centers, proximity to transportation corridors, and the GAP Status (identification of areas having restricted growth area potential). This resulted in a set of maps evaluating all of the streams in California. The streams are FLOOD MAP MODERNIZATION STATE BUSINESS PLAN PAGE 12

17 prioritized based on a statewide needs assessment for future mapping assignments. This database was available in July ON-LINE MAPPING As Awareness Floodplain Maps are completed, they are made available on DWR s web page. Supporting metadata files and electronic files for each map are also provided for public use. The Web site for this information is: These maps are considered living documents and will be expanded/revised as new floodplain mapping is completed. SUPPORT FOR THE HAZARD MITIGATION PROGRAM FEMA s new Hazard Mitigation Planning and Hazard Mitigation Grant Program offers an excellent complement to California s Awareness Floodplain Mapping Program. As a planning tool, the awareness mapping provides the necessary advance floodplain mapping information for areas not mapping by the NFIP. Economic assessments indicate that the Benefit-to-Cost ratio for this type of mapped effort exceeds 100. The current awareness mapping data will enhance the HMP & HMGP efforts as well as t providing support to the Awareness Floodplain Mapping Program. PURSUIT OF OTHER ALTERNATE MAPPING SUPPORT WITHIN THE STATE Attention to the mapping needs of the State may find support through on-going programs and existing governmental code requirements. All have parallel and direct applications that, when identified in the proper light, may secure additional support to the obvious issues at stake when allowing development in potential floodplains already mapped or not mapped. Other projects such as the California Legacy Project may find that support of Awareness Floodplain Mapping will be beneficial to the project objectives. Government Code requires protection of California s land resources and economic assessment of land use changes that would indirectly require assessment of potential floodplains. Greater emphasis on these types of program and regulatory issues needs to be pursued. DWR is supporting potential changes to FEMA mapping regulations to allow mapping for future build-out as well as future hydrology. In addition, older floodway encroachments tend to lose viability as new data is obtained and development changes occur. Consideration of the No Adverse Impact process should also come to the forefront in the application of NFIP criteria for the 21 st Century. FLOOD MAP MODERNIZATION STATE BUSINESS PLAN PAGE 13

18 COMMUNICATIONS Communication with all of the State s communities is fundamental in the construction and use of these floodplains. In the past, communication with each individual community about mapping needs has been sporadic at best. In the process of formalizing communication procedures for our mapping programs and the use of the floodplain mapping products being produced, DWR representatives have met with all of the impacted counties and some of the major cities. The intent is to establish a formal coordination process for use with all of the communities (more than 500) in California resulting in a permanent two-way communication venue supporting all of the State s future mapping issues. We are providing each community the ability to in determine the mapping needs for their community. MERGING STATE ACTIVITIES Combining mapping and outreach coordination activities internally is essential to ensure a systematic and continuous relationship with each community about the NFIP as well as floodplain management and future mapping activities. There is also a need to combine mapping efforts with other state agencies, such as OES. The Cobey-Alquist Flood Plain Management Act and Executive Order B has delegated responsibility to DWR for activities supporting floodplain mapping. DWR has the role of being the central focus for establishing and coordinating all mapping activities performed by FEMA, the State, and the Corps. Aggressive management of available funding, not just at the State level, but including local community support can realize greater support for the NFIP. Again, this requires a centralized coordination process. THE SACRAMENTO AND SAN JOAQUIN RIVER BASINS COMPREHENSIVE STUDY The Comprehensive Study, with overwhelming involvement and support of stakeholders and interests, resulted in a process for developing future projects to meet the system s comprehensive public safety, flood damage reduction, and ecosystem restoration objectives. The process consists of guiding principles that will be used by The Reclamation Board in planning, developing, and implementing projects jointly with the U. S. Army Corps of Engineers. Projects for flood protection and ecosystem restoration will be initiated at the local level with broad-based support from stakeholders and interests to ensure public support from the beginning. Local expertise and experience, together with Federal and State agencies will be utilized in updating technical data and models. In this way, local agencies will be involved with the evaluation process through information sharing. The Comprehensive Study developed a number of system-wide evaluation tools to gain a better understanding of the complex hydrologic, hydraulic, and ecological processes FLOOD MAP MODERNIZATION STATE BUSINESS PLAN PAGE 14

19 that interact in the rivers and floodplains of the Sacramento and San Joaquin River basins. Before the Comprehensive Study, no models existed that evaluated Central Valley river systems on a watershed scale. The shear size of the study area (43,000 sq. mi.) warranted a new technical approach. The technical tools that were developed encompass the entire river systems, from reservoirs in the upper watersheds downstream to the Delta. They provide an unprecedented capability to evaluate the operation of the existing flood management system and develop future projects to reduce flood damages and improve the environment. ACTIVITIES NEEDING STATE SUPPORT Additional activities requiring future consideration for support of the State s floodplain mapping needs, include the following, but are not listed in any order of priority: Create a statewide database for all levee systems in the State identifying all pertinent information. Provide greater support for the performance of flood insurance studies for all associated activities in the preparation of floodplain mapping either through CAP MAP or the CTP process. Provide 2-way communication with each community for both feedback and support for floodplain mapping issues. Improve communication with the public by providing media and press information support and a current and informed web based presentation. Provide a centralized process to aid communities in obtaining funding support for mapping through use of State, FEMA, Corps, and other agency programs. Develop standardized flood warning procedures and acceptable methodologies for workshop applications. Pursue methodologies supportive of environmental restoration not in conflict with good floodplain management. Need to provide support for creation of pamphlets explaining the different floodplain management activities. FLOOD MAP MODERNIZATION STATE BUSINESS PLAN PAGE 15

20 FLOODPLAIN MANAGEMENT AND MAP MODERNIZATION PROGRAMS HISTORY OF FLOOD HAZARD MAPPING IN THE UNITED STATES Mapping of the nation's floodplains began in the 1950's when the U.S. Army Corps of Engineers, the U.S. Geological Survey, the Soil Conservation Service (now Natural Resources Conservation Service), and the Tennessee Valley Authority initiated efforts to delineate flood hazards. Soon after creation of the National Flood Insurance Program in 1968, the US Department of Housing & Urban Development began publishing Flood Hazard Boundary Maps. FHBMs were developed using "approximate study techniques." FHBMs were intended to provide an early warning for local officials that flooding could occur in their community. The original plan anticipated that more accurate Flood Insurance Rate Maps following completion of detailed studies of the flooding sources would replace FHBMs within 5 years. Detailed Flood Insurance Studies and FIRMs were produced throughout the 1970's for many communities across the country. Some communities are still using maps that are 35 years old. As this program matured: HUD realized that instead of 5,000 communities that were originally thought to have significant flooding problems and, therefore, needed a map - there were in excess of 19,000 communities; FEMA was created in 1979 to administer, among other programs, the NFIP; In the mid-1980's the Corps was directed by Office of Management and Budget to discontinue producing Floodplain Information Reports. These reports, which often became the basis for a FIRM, were perceived to be duplicative of the FIS's being undertaken by FEMA; The USGS and NRCS were directed by OMB to discontinue producing floodplain maps based on the same rationale used for the Corps' program; FEMA was told to end the "emergency phase" of the NFIP effectively limiting their ability to produce more approximate studies to complete the nation's mapping; The number and cost of Letters Of Map Amendments (LOMA), Letters Of Map Revisions (LOMR) and Letters Of Map Revisions Based On Fill (LOMR-F)- began to multiply; FEMA, after realizing they would likely never receive the funds to prepare all necessary detailed studies, undertook a mass conversion of the remaining Flood Hazard Boundary Maps to Flood Insurance Rate Maps (FIRMs), without benefit of further detailed studies. By 1990, there were over 100,000 panels, but there were still large areas of the country for which no maps had been developed. In addition, more and more of the funds earmarked for conducting Flood Insurance Studies (FIS) were diverted to deal with LOMAs, LOMRs, and LOMR-Fs. FLOOD MAP MODERNIZATION STATE BUSINESS PLAN PAGE 16

21 In 1994, Congress directed FEMA to establish the Technical Mapping Advisory Council (TMAC). The TMAC ( ) provided a series of recommendations to FEMA to improve the maps and the mapping process. The Technical Mapping Advisory Council was created in November 1995, which included in its membership representatives from a variety of governmental and professional organizations with an interest in floodplain maps. The Council produced five annual reports, each containing specific recommendations to FEMA, and a final report in November 2000 that included a summary of all of the recommendations. Each recommendation, if implemented, would improve the maps and the mapping processes. FEMA made great strides to implement those recommendations that were possible within its existing budget. FEMA also prepared a plan to implement the remaining Council recommendations and requested the resources necessary to fund its Map Modernization Plan. A summary of recommendations from the Technical Mapping Advisory Council's Final Report is included in Appendix A. DWR FLOODPLAIN MAPPING PROGRAM SUPPORT DWR signed a basic Cooperating Technical Community Memorandum Agreement with FEMA in 1999 (shown in figure 1). All new activities will be documented using a Cooperating Technical Partners agreement for each Mapping Activity Statement or Figure 1 Cooperating Technical Community agreement FLOOD MAP MODERNIZATION STATE BUSINESS PLAN PAGE 17

22 grouped activities. The floodplain mapping standards supported by DWR are intentionally based on FEMA standards ensuring all floodplain studies are compatible with FEMA mapping requirements. DWR s Floodplain Management Branch has three staff members dedicated to floodplain mapping support. This staff has a combined experience of about 60 years in floodplain mapping activities. In addition, approximately six other experienced staff members are available as needed to perform all activities required for support of DWR s mapping programs. This includes hydrology, hydraulics, mapping, quality assurance and control, and any other related function. Current Funding Programs Funding at the State level primarily comprise of an authorized annually funded budget from the General Fund for $1,400,000 (currently reduced to $270,000) and a one time Proposition 13 funding for $2,500,000. These funds in part have been used to cost share work supported by the Corps and the Natural Resources Conservation Service leveraging the mapping products provided. In addition, DWR is working with the Corps in providing mapping products using the Flood Plain Management Services Program, which is totally funded by the Corps. In the last few years, the NFIP has been limited in mapping production. Because of the change in funding authorization for the NFIP, badly needed major mapping support is initiating across the country as well as in California. FEMA, Region IX, will administer this new 5-year mapping effort. Region IX may receive about $8,000,000 for mapping products this year. The funding for California has not yet been identified. EXISTING STATE MAP MODERNIZATION PLAN Since FEMA issued their July 30, 1997, Modernizing FEMA s Flood Hazard Mapping Program report, FEMA staff and their mapping partners have been laying the groundwork for implementation of the Map Modernization Plan. In planning the flood map upgrades, FEMA will address the following Government Performance Results Act performance measures suggested by the Office of Management and Budget for the proposed funding for Flood Map Modernization: Reducing the average age of the maps to 6 years Producing digital mapping products for the 15 percent highest priority areas Developing flood maps for half of the unmapped, flood prone communities Encouraging State/local cost-share on flood mapping projects The Map Modernization Plan for the State of California, August 2002, is provided in Appendix B. This Plan was prepared to assist FEMA in the development of regional and national plans for implementing the FEMA Map Modernization Program. This Plan summarizes the role that the State of California will play, as initially envisioned in 2002, FLOOD MAP MODERNIZATION STATE BUSINESS PLAN PAGE 18

23 in completing the required mapping activities and how these activities will be managed and performed as well as providing some insight into existing programs in the State. DWR is totally committed to support FEMA s mapping programs and the benefits obtained from these programs. DWR is prepared to provide technical support to FEMA for the production of new studies and maps. This new State Business Plan reflects current issues and needs; however, it continues to support the objectives of the initial plan. As individual community needs change along with FEMA s funding support, program objectives will be adjusted to reflect these changes. HAZARD MITIGATION PLANNING The hazard mitigation planning process is a dynamic process that provides direction for hazard mitigation activities within the state in the most effective way. The Stafford Act as amended, and FEMA regulations and guidance highlight the importance of the hazard mitigation planning process. The hazard mitigation planning process involves organizing resources, assessing risks, developing the State s mitigation strategy, goals, priorities, and implementing the plan and monitoring progress. Various agencies of the state government, such as the Seismic Safety Commission, the Department of Forestry and Fire Protection, the Governor s Office of Planning and Research, the Department of Water Resources, and the Department of Transportation, are involved in hazard mitigation planning efforts. There are also many multi-agency mitigation efforts ongoing within the state such as the California Fire Alliance, the California Floodplain Management Task Force, the Drought Task Force, and the Sacramento and San Joaquin River Basins Comprehensive Study. California has a robust and effective hazard mitigation planning process. The net result of a successful and effective hazard mitigation planning process is lives saved, reduced injuries, and avoided damages. One product of the hazard mitigation planning process is the California Hazard Mitigation Plan. The state flood hazard mitigation plan was approved by FEMA in 1996 and was developed through a multi-agency approach that involved all levels of government and the private sector. The plan was a collaborative effort involving many state agencies including DWR, OES, and several others. The state hazard mitigation plan was updated by the addition of Phase Two Community Profiles and State Agency Capability Assessment. Hazard mitigation efforts are coordinated among entities in various ways within the State of California. The primary state agencies responsible for this coordination include: The Governor s Office of Emergency Services (OES) Seismic Safety Commission (SSC) Department of Forestry and Fire Protection (CDF) Department of Water Resources (DWR) The Governor s Office of Planning and Research (OPR) FLOOD MAP MODERNIZATION STATE BUSINESS PLAN PAGE 19