DOC. FEM 1.8: F65/ instructor Ur III atU:fca-i**Vr»»w?aign UNIVERSITY ur ILLINOIS LIBRARY AT URBANA CHAMPAIGN BOOKSTACKS INTERIM IG- 14 1980 FLOOD HAZARD MANAGEMENT AND NATURAL RESOURCE PROTECTION INSTRUCTOR'S MANUAL MAV . a federal emergency management agency ■■ I INTERIM IG-14 September 1980 FLOOD HAZARD MANAGEMENT AND NATURAL RESOURCE PROTECTION INSTRUCTOR'S MANUAL . Prepared by The Conservation Foundation* under contract to the Federal Emergency Management Agency * WITHDRAWN University of Illinois Library at U; ban S -Clnrrpaign Digitized by the Internet Archive in 2013 http://archive.org/details/floodhazardmanagOOcons TABLE OF CONTENTS Pc PREFACE fCf/rts+tu- ^3£ ! SAMPLE COURSE TIME PLAN 3 MODEL PROGRAM OUTLINE (Lesson Plan Titles and Scopes) INFORMATION FOR THE INSTITUTE DIRECTOR 13 A. Organizational Guidance I 3 1. Objectives of the Training Program 14 2. Preparing a Work Schedule 15 3. Staff and Staff Functions 15 4. Budgeting ..... 1° 5. Selection of Conference Facility 19 6. Scheduling of Institute 21 B. Program Development ^ J 1. Modifying the Model Program 2. Steering Committee ^4 a. Selecting the Committee b. Steering Committee Role ^6 3. Participant Selection o o a. Target Communities b. Identification of Participants c. Scholarships 32 d. Invitations e. Follow-up Correspondence Page 4. Resource People 35 a. Selection 35 b. Invitations 37 c. Briefings 37 d. Funding 38 5. Pre-Conf erence Mailings 39 6. Training Materials 40 a. Resource Manual 40 b. Community Action Guide Summary .... 41 c. Model Student Manual 41 d. Mapping Exercise Materials 42 e. Slide Presentation 42 f. Simulation/Game 42 7. Pre-Institute Checklist 43 8. Registration 44 9. Institute Evaluation 44 10. Post Institute Follow-up 45 C. Tips on Conducting the Institute 46 1. Role of the Institute Director 46 2. Functions of Various Institute Sessions . . 46 a. Plenary Sessions 48 • Speeches 48 • Roundtable Discussions 48 • Reactor Panels 50 • Room Arrangements 51 Page b. Small Group Discussions 52 • Training Workshops • Information Workshops • Working Groups • Basic Procedures for Discussion Groups 5 • Guidelines for Small Group Discussion Leaders • Brainstorming ->6 LESSON PLANS A. Coastal Training Institute 1 -37 B. Riverine Training Institute APPENDICES A. Sample Invitation Letters, Briefing Memos .... A "l B. Mapping Exercise Materials (Blue lines, U.S.G.S. maps, Handouts, Briefing Memo) B ~l C. Slide Show Script c_1 D. Case Study Materials D-1 E. Simulation Exercise (PAGAN) E_1 F. Sample Evaluation F_1 c— ~\ G. Model Student Manual - Riverine H. Model Student Manual - Coastal H-l I. Flood Hazard Management and Natural Resource Protection: Community Action Guide .... 1-1 PREFACE This Trainers' Manual is designed to serve as a detailed guide for individuals or organizations interested in conducting the training program on community flood hazard management and natural resource protection developed by The Conservation Foundation for FEMA. Many of the principles discussed here are also applicable to training programs on a wide range of topics. This manual supplements the two model training institute programs developed by CF, for FEMA, following an evaluation of two pilot training institutes conducted in May, 1980. One model program addresses coastal flooding problems, and the other, riverine flooding problems. These programs, designed for local officials and key citizen leaders, have several important objectives: • educating community leaders on the causes of flooding (natural and man-induced) and the role which natural resources can play in mitigating flood hazards; • educating community leaders about alternative strategies for flood hazard management including the requirements of the National Flood Insurance Program (NFIP) and strategies which go beyond the minimum requirements of the NFIP; • educating community leaders on the importance of public participation in the decision-making process, the key steps where public input can be most valuable and the range of tools and techniques available to achieve effective public participation; • instilling in community leaders a desire to apply the lessons of the institute in their own communities; and • providing participants with an opportunity to develop specific follow-up plans to improve flood hazard management in their community and/or region. Each of the pilot training institutes from which this final program model was derived was organized around a multi- state region. The pilot programs were designed for 100-125 participants. Most participants came from communities within the region, with no more than three or four from any given community—each representing a local community perspective (local government, business, environmentalist, civic leadership). The program as presented in this training manual, however, is applicable for use or adaptation to a variety of small- and large-scale geographic divisions, and with audience sizes ranging from 25 to 125 — so long as the program is directed to the community level. -2- The Trainers' Manual is intended to assist you, the Training Institute Coordinator, in conducting a successful training program which meets these objectives. Included in this manual are : 1) Summaries of the model training programs; 2) Detailed guidance for the Training Institute Coordinator on how to organize the institute from start to finish; 3) Detailed lesson plans for each program describing the 17 elements which comprise the 2-1/2 day program; and 4) Detailed Appendices including samples of invitation letters, briefing memos, and training materials. Those of you planning to organize a training institute should read through this manual carefully before taking your first step. It's essential that you understand fully the nature and complexity of your job from the outset. Careful advance planning can help you avoid a multitude of disappointments and missed opportunities along the way and ensure a successful Institute. Specifically, you will probably want to refer to the section on "Information for the Institute Director" throughout your planning process. You will also want to provide each of your confirmed resource people (speakers, workshop leaders, etc.) with a copy of the detailed lesson plan for their respective sessions. Most of you will have no problem identifying which version of the program (Coastal or Riverine) best suits the needs of your community, state, or region. However, some of you may be considering a geographic area which includes both coastal and riverine communities and wish to address both types of flooding problems in a single training institute. If this is the case, we suggest you carefully study both programs, identify the elements which differ between the two programs, and then modify the program to include concurrent sessions addressing both coastal and riverine issues. The program has been designed to extend over a two-and-a-half day period (refer to Figure I Sample Time Plan for a layout of the model program). If utilized in a single community, it may be necessary or desirable to divide the training course into, for instance, two-hour components, and to run the course once a week (in the evenings) for nine weeks. 9 Oi w ■H Eh ft b E-i M EH CO B H o 2 H 2 £ CO Eh ft 13 ft u H ft J < m 5 s cm ft o 2 D -3- oooooooo coonofioroo w CD ft o o EH w CJ 2 ft a a x u oooooooooo coomorooroocno o o o o o n o <*i o o -» • — ■ ■ o o o o o rn o rn ooo>cnoorHrH 00 (fl w s u s o w Eh U C o o' o o o o ro o n o a u 2 5 o o o o o n o <*i o en o o o ft ft o X J ft a w H 2 u 2 C) H CO Q t 1 I I »-■ ! I I I 1 ! OOOOOOOOOO rn o en o rn n o m n 00 Cl O O rH CN CM CM 2 O u ft o Eh CO 2 ft w a s O ft CD CD o o o o o o o fi o fl o rn o n o 6 6 o m o H U o CQ ft ft 2 2 ft O ft s« ft ft ft 2 CO O H < ft in u ft w rt! c; 2 H ft H U ft ft o 2 CD ft CO O 2 H co s H ft Q ft MODEL PROGRAM OUTLINE (Lesson Plan Titles and Scope) 11:00 a.m. - 1:00 p.m. INSTITUTE REGISTRATION 1:00 WORKSHOP INTRODUCTION (Lesson Plan No. 1) Scope : Official opening of the workshop by welcoming participants, officials and guests; a general description of the workshop purpose, objectives, scope and subject areas; welcoming remarks of dignitaries; introduction of group coordinators and/or staff instructors, assignment of participants to groups; orientation to sequence of workshop sessions, time schedules, and facilities (notation of agenda changes, if necessary) administrative announcements. Activity : Plenary Session. Speech. Questions and Answers. 1:30 - 2:15 INTRODUCTION OF PARTICIPANTS (Lesson Plan No. 2) Scope : Introduction of participants to others sharing similar geographical area (state, substate, watershed). Participants share with each other what they bring to the Institute and what they hope to accomplish. Brief discussion of participant community flooding problems and review of purpose of small group discussions. Activity: Small Group Discussions within the Plenary room. Groups divided according to geographic criteria. 2:15 - 2:30 BREAK -6- 2:30 - 4:00 FLOODING AND FLOOD HAZARD MANAGEMENT IN COASTAL AREAS: AN OVERVIEW (Lesson Plan No. 3) Scope: The nature of coastal flood hazards; the special economic, social, and environmental problems of protecting coastal populations and properties from flood damage; the difficulties of timely and accurate hurricane prediction; ecologically sensitive areas in the coastal floodplain; an historical perspective on coastal flood hazard management, the traditional problem solving approach vs. new directions; why government policies are changing. Activity : Plenary Session. Film followed by Reactor Panel Questions and Answers. 4:00-4:45 ESTABLISHING THE GOALS OF COMMUNITY FLOOD HAZARD MANAGEMENT (Lesson Plan No. 4) Scope : Identification and discussion of major goals for community flood hazard management. Cate- gorization of goals according to interest group. Activity: Plenary Session. Participants complete exercise listing major goals. Institute Director records goals on newsprint according to categories of interest groups. Discussion followed by group ranking of goals. 5:15 - 6:00 SOCIAL HOUR 6:00 - 7:30 DINNER 7:30 - 9:30 THE NATURE OF FLOODING IN COASTAL COMMUNITIES AND THE SPECIAL ROLE OF COASTAL ECOLOGICAL RESOURCES IN FLOOD HAZARD MITIGATION (Lesson Plan No. 5) Scope : Description of special ecological characteristics and hazard mitigation functions of natural coas'tal systems: beaches, oceans, estuaries, bays, and tidal rivers. Presentation of land I DAY TWO * -7- use suitability analysis concepts. Actual experiences utilizing natural resource maps as decision-making tools. Activity: Concurrent Small Group Sessions. Mini-lecture followed by group discussions. •> 8:30 a.m. FLOOD HAZARD MANAGEMENT: THREE STORIES (Lesson Plan No. 6) Scope : Brief review of rationale for community flood hazard management. Presentation of three community approaches to particular flooding problems . Activity : Plenary Session. Slide Presentation. 8:45 - 9:45 DESIGNING A FLOOD HAZARD MANAGEMENT PROGRAM: IDENTIFYING GOALS, OPPORTUNITIES AND STRATEGIES (Lesson Plan No. 7) Scope : Review of flood hazard management goals used by communities depicted in the slide show. Discussion of various opportunities and strategies available to the communities in the slide show during both the pre- and post-stages of flood hazard management. Emphasis on importance of local initiative. Relating goals and actions of communities in the slide show to goals listed by participants early in the Institute. Activity : Small group discussions within plenary Session. Completion of group exercise. 9:45 - 11:00 THE FEDERAL AND STATE FRAMEWORK FOR COMMUNITY FLOOD HAZARD MANAGEMENT DECISION MAKING (Lesson Plan No. 8) Scope : Various federal and state programs that affect coastal flood hazard management including: NFIP, Floodplains and Wetlands Executive Orders, Coastal Zone Management and State Natural Resource Management Programs. 8- Activity ; Plenary Session. Speech followed by roundtable discussion of key questions posed by moderator. Questions and Answers. 11:00 - 11:15 BREAK 11:15 - 12:15 THE NATIONAL FLOOD INSURANCE PROGRAM: WHAT IT DOES AND DOESN'T DO (Lesson Plan No. 9) Scope : Minimum requirements of the NFIP, basic tools (maps, FIS study, flood profiles) provided by NFIP, issues which NFIP addresses, issues not addressed by NFIP. Activity : Plenary Session. Speech followed by roundtable discussion of key questions posed by moderator. Questions and Answers. 12:15 - 1:30 LUNCH 1:30 - 2:30 FLOOD HAZARD MANAGEMENT: ISSUES AND PROGRAMS (Lesson Plan No. 10) Scope : Detailed look at various issues and programs relating to the NFIP including: building standards, NFIP regulations, Section 1362 of National Flood Insurance Act of 1968, flood hazard mapping, Coastal Zone Management. Activity: Concurrent small group sessions. Mini-pre- sentation by group leader followed by group discussions . 2:45 - 3:45 LOCAL STRATEGIES FOR FLOOD HAZARD MITIGATION: CASE EXAMPLES (Lesson Plan No. 11) Scope : Review of specific strategies that different communities have employed to manage coastal flood hazards, highlighting community goals, the design and implementation of the strategy, and the role of federal, state, local and public actors. The focus will be on key -9- factors in making the strategy work. Specific strategies addressed might include: relocation, recreation/acquisition, storm water management, zoning, critical areas protection, development standards . Activity: Concurrent small group sessions. Mini-lecture by group leader followed by group discussion of specific case examples. 3:45 - 4:00 BREAK 4:00 - 5:00 THE ROLE OF PUBLIC PARTICIPATION IN COMMUNITY FLOOD HAZARD DECISION MAKING (Lesson Plan No. 12) Scope : Importance of public involvement, various publics affected by flood hazard management programs, performance standards for effective public involvement, tools and techniques for public involvement . Activity: Plenary Session. Speech followed by roundtable discussion of key questions posed by moderator. Completion of group exercise. Questions and Answers . 5:00 - 6:00 SOCIAL HOUR 6:00 - 7:30 DINNER 7:30 - 9:30 RECOMMENDATIONS FOR GROUP ACTION (Lesson Plan No. 13) Scope : Continuation of earlier group discussion of community problems, state problems, action required to resolve problems (i.e., better data and data analysis, public education and involvement, intergovernmental cooperation, social and economic considerations). Activity : Concurrent small group discussions. -10- DAY THREE 8:30 - 9:30 a.m. ISSUES IN PUBLIC PARTICIPATION (Lesson Plan No. 14) Scope : Specific issues and tools relating to effective public participation: goal setting, coalition building, bargaining and negotiation, communication skills, motivating the public. Activity : Concurrent small group sessions. Mini-lecture by group leader followed by group discussion. 9:30 - 10:00 BREAK 10:00 - 12:00 DESIGNING A FLOOD HAZARD MANAGEMENT PROGRAM IN COASTAL COMMUNITIES (Lesson Plan No. 15) Scope : Analysis of the tradeoffs involved in designing a community flood hazard management program uses. Group exercise case study information on physical characteristics, population, flood problems, economic/social considerations, politi- cal context; present community maps and flood hazard areas; pre-flood and post-flood opportunities, goals development, legal institutional framework, specific strategies. Activity: Concurrent small group sessions. Facilitator leads group in discussion of case study materials and set of specific questions. 12:00 - 2:00 LUNCH 2:00 - 3:00 FINAL SMALL GROUP DISCUSSIONS (Lesson Plan No. 16) Scope : Continued discussion of specific opportunities and strategies which should be implemented at the local and/or regional (state) level to improve flood hazard management. Identification of specific steps which participants intend to take following the Institute to achieve their goals . -11- Activity : Concurrent small group sessions. 3:30 - 4:30 COMMUNITY FLOOD HAZARD MANAGEMENT: A CHALLENGE TO WORK TOGETHER (Lesson Plan No. 17) Scope : Presentation and discussion of group follow- up plans, concluding remarks by workshop director. Participant evaluation and verbal feedback. Activity: Plenary Session. Presentations by working group leaders. Concluding remarks. Completion of evaluation forms. -13- INFORMATION FOR THE INSTITUTE DIRECTOR Conducting a Training Institute of this scale and complexity is no easy task. At a minimum, it requires solid organizational skills, and a staff of at least two to three hard workers who have both the energy and the enthusiasm to make the program a success. Assuming your organization meets these minimum criteria, we offer in this section detailed guidance on key aspects of preparing and conducting such a program. This information reflects The Conservation Foundation's extensive experience in developing and conducting training programs. A. ORGANIZATIONAL GUIDANCE In calling this section organizational guidance we are making a rather arbitrary distinction between the administrative and logistical problems of organizing an Institute and the program itself. The two are interrelated and cannot be easily separated. Much of the success of the substantive program will depend upon the logistical details that back it up. An institute organizer should begin with the basic assumption that if anything can go wrong, it will. Some of the things that may happen, are: • speakers cancel at the last minute; • audio visual equipment doesn't arrive, or doesn't work, or isn't set up; • rooming lists are misplaced; and • rooms reserved by the Institute at the conference facility are switched by the staff of the facility at the last minute — and the new rooms no longer meet the needs of the Institute. You and your staff will need to stay a step ahead of the program at all times, and check on each detail, leaving yourself time to take care of emergencies. The logistical key to staging a successful conference is to ensure that no one except your own staff knows what's going wrong, and to think positively in solving problems. Confused conference logistics can leave everyone with a bad taste, and undermine the efforts of otherwise excellent speakers and discussion leaders. -14- 1 . Objectives of Training Program Possibly the most important first step in implementing this type of training program is to ensure that you and your staff have a clear understanding of the objectives of the course. Although this may seem an obvious point, we believe it's one worth stating. For you are the ones who will have the job of "selling" the Training Institute to those you want to attend. You will also have to brief speakers and discussion leaders, and direct the training itself. Only if you are convinced of the importance of the Institute and sure of its intended objectives can you both hope to convince others to attend and make certain that the program runs smoothly. The major goal of the Training Institute is to educate local officials and citizen leaders about alternative approaches to flood hazard management so that they may incorporate for their communities a range of community values including natural resource protection. Specific objectives are: • to provide participants with a better understanding of the NFIP as a starting point or framework for community flood hazard mitigation and to focus on the strengths and limitations of the NFIP; • to provide participants with a greater understanding of the role which natural resources play in mitigating flood hazards; • to provide participants with a greater understanding of the importance of public participation at key points in the decision-making process and to instill in them a commitment to become or remain actively involved; and • provide participants with an opportunity to develop specific follow-up plans for activities which they intend to pursue in their own communities/regions in an effort to improve local flood hazard management. These may seem like ambitious goals and objectives to accomplish in a 2-1/2 day or even a 3-1/2 day period — and they are. But as two test-runs of the Training Institute prove, this training program as designed can be highly effective in achieving these goals and objectives. It's important that the Institute director clearly outlines these objectives at the beginning of the Training Institute, highlighting what participants will be expected to accomplish by the close of the Institute. Participants should be provided the opportunity to review these objectives, suggest modifications and ultimately adopt the modified objectives before proceeding with the Training Institute. -15- 2. Preparing a Work Schedule Once you are clear on the goals and objectives of the Institute your next step should be to outline the major tasks to be accomplished in preparing for the institute and to develop a time schedule for completion of those tasks. Be sure to allow sufficient time to accomplish the various tasks assuming that in most instances things will take more time than initially expected. Events such as staff turnovers, printing delays, or even natural events such as hurricanes or floods can seriously disrupt your planning schedule unless you build in adequate flexibility. We estimate that the minimum lead time for planning an Institute of this sort is six months. We include here a model timetable (Figure 2) which outlines the major tasks you'll be expected to accomplish in preparing for a Training Institute. You may want to fill in additional details as you see fit. 3 . Staff and Staff Functions As was mentioned earlier, depending on the make-up of your organization, you will need to assign a minimum of two to three hard working staff to ensure the success of the training institute. Each of these staff will not need to work full time on the training institute for all six months, but they will each at some point need to give priority full-time attention to the institute. The way in which staffing needs will be fulfilled will vary from organization to organization. Normally, the staff will be comprised of an: • institute coordinator; • assistant coordinator; and • a secretary. The staffing functions will be: • Substantive — as mentioned earlier, the accomplishment of the goals of the training program will depend on you and your staff's understanding of its goals and objectives. One key person (the Institute Coordinator) should have a deeper understanding of the substance of the training program. The Institute Coordinator will have a number of duties that should only be delegated to someone with adequate substantive knowledge to accomplish the required tasks. Some of these tasks will be: — briefing speakers; -- coordinating steering committee activities; -16- Figure 2 MO DEL TIME TABLE Month 1 ic tasks X Task • Develop time table and assign staff to specific tasks • Review relevant background material X • Select regional steering committee members and send invitation materials (1st) X • Hold (1st) steering committee meeting X • Select site for Institute and make administrative arrangements X • Revise Model Program based on steering committee comments. X • Identify potential participants XXX • Send invitations XXX • Hold 2nd steering committee meeting (optional) X • Identify and invite potential resource people XXX • Follow-up on initial invitations with phone calls X X • Send pre-Institute reading materials X • Prepare workbooks X • Hold Institute X • Evaluate Institute X -17- -- modifying the institute program and workbook to reflect steering committee suggestions; and — moderating the program. • Administrative--the importance of the logistical component of conference organizing should never be underestimated. A number of administrative and organizing tasks must be accomplished before, during and after the conference. The individual responsible for administrative matters should not be the same person in charge of the substantive end of the program. Both jobs are too demanding and demands often occur concurrently. For example, the substantive person moderating the conference cannot at the same time be responsible for checking the rooms and audio visual equipment necessary for subsequent sessions. Some of the administrative responsibilities include: — making all conference facility arrangements; — making certain that appropriate financial records are kept regarding registration fees and scholarship awards; -- managing conference registration; — arranging for and checking on all special conference needs such as audio-visuals, easels, newsprints, markers, etc. — staying one step ahead of the program by making certain that facility arrangements work smoothly; -- dealing with special problems participants have with rooming arrangements, meals, etc. • Secretarial — good secretarial support is essential in conducting a training program of the sort described here. Secretarial responsibilities will include: — typing and mailing invitation letters and registration forms ; -- maintaining scholarship and registration records; — typing and getting printed participant program material, workbooks and lists; — mailing pre-conf erence materials to registered participants ; -18- -- making certain that registration packets are complete; and — assisting with the variety of administrative responsibilities described above. 4 . Budgeting A multi-state or single-state training institute of the type described in this manual will cost between $25,000-30,000. The major cost categories are: a. Administrative/Program Development costs ($15,000- 20,000). Variables in this cost category include: — size of geographic area and resultant travel and telephoning costs; — salary level for staff, and overhead of organization. Budget categories for the coordinating organization would include: staff, benefits, travel (including payments for steering committee travel), other direct costs (telephone, xerox, postage), and indirect costs. b. Direct Conference costs -- vary between $7,000-15,000 for a single-state or multi-state organization. Budget categories include: scholarships for participants, travel, per diem, speakers' expenses, printing (workbooks, programs, name tags) renting audio-visual equipment. Major variables in conference expenses will include: • distances to be traveled; • base cost of the conference facility (room and board); • number of people invited needing scholarships; If the conference is conducted in a smaller geographic area, costs may be even further reduced. Such smaller scale conferences will not only be subject to the same variables listed above, but will present an additional question of whether an overnight stay is in fact necessary. i -19- 5 . Selection of Conference Facility Selection of the facility for the Training Institute is an important decision which can have a great impact on the ultimate success of the Institute. You should be sure to reserve your facility very early in the planning process since good ones are often booked months or years in advance. When evaluating various possibilities, you will want to consider a number of factors including costs, capacity, location and accessibility, conference facilities, and amenities. Cost — room and board for participants will comprise the major cost of the facility. Keeping the cost down is important not only for your own budget but also in order to achieve the full audience you might seek. Under most circumstances scholarship payments will provide assistance for no more than one third to one half of the participants. The remainder will have to pay their own expenses. We have found that conference facilities and hotels are usually willing to establish a special package that includes a fixed price per person per day for room and board, coffee breaks, and conference rooms. We have always used double occupancy as the base price. Participants and scholarship recipients pay extra if they wish a single room. In the current market, you will probably wish to limit your search to those facilities which can offer you a rate of less than $50 per person per day for double occupancy. This is a reasonable limit which should not be prohibitive to those participants who'll be paying their own way to attend the Institute. Be sure to check with the facility to determine what costs are included in the per diem rate. In many cases, there are extra charges for coffee breaks, meeting rooms, bartenders, audio-visual equipment, etc., but some facilities include these in their flat rate. Size — You should, of course, limit your search to facilities which can adequately handle the number of participants you expect to attend. If your group is large, and the facility relatively small, you'll want assurance that you will not have to compete with another group for space and staff assistance. If your group is small, you should select a facility which will not dwarf the group but rather will provide an intimate environment which can enhance group dynamics. Location — Another criterion to consider is that of location and accessibility. Those facilities with the best access are usually located in the downtown of a major city or adjacent to a major airport. However, in most instances the downtown facility will be too expensive and offer too many distractions which could lure participants away from the sessions. On the other hand, an airport location might meet the cost requirements but would not offer the type of attractive and varied environ- ment conducive to this type of intensive Training Institute. -20- We consider the optimal setting for this type of Training Institute to be a relatively remote facility located in a pleasant environment no more than a one to two hour bus ride from a major airport. Ideally, this facility might offer amenities such as a swimming pool, hiking or nature trails, etc. Although the program is tightly scheduled and will not offer much time for recreation, our experience has been that participants take advantage of the moments they do have and appreciate the oppor- tunity to walk outside in a pleasant atmosphere. You will want to evaluate the facility carefully and make certain it's isolated, with a pleasant environment, but without so many attractions that the location competes with the program. One of the pilot institutes was held in an historic small beach town, in a magnificent historic facility. Although the location was remote (one hour drive from a major metropolitan area) and the facility beautiful, it provided too many attractive alternative activities to the conference program. Physical Requirements --The training program described in this manual is designed for 100-125 people. It contains a mixture of small and large group sessions. Some sessions use speakers, panels, roundtable discussions, and a variety of audio visual activities. Other sessions use case studies and maps, and are designed to foster small group discussion. The physical requirements of each element of the program are described in the detailed Lesson Plans, and are also addressed in Section C - Tips on Conducting the Institute. Summarizing physical needs, however, you will find you need a variety of modern conference facilities. The conference facility must have modern lighting and acoustical features. In addition, it might ideally have available xerox capacity, audio-visual equipment, audio-visual assistance (in case equip- ment breaks) and easels with newsprint for small group sessions. If the facility does not have the appropriate audio-visual equipment and easels for small group sessions, you will have to rent them. The minimum space needs for the program described in this manual will be: • One large room for plenary sessions. Ideally this room should have a seating capacity of no more than 150 people, as you won't want your group to be dwarfed by the size of the room. If the conference facility is otherwise ideal, and you are willing to accept a larger room, you should arrange to rope off the extra space in the back of the room so that the participants will be concentrated up front. I -21- We have found that auditorium style rooms with a stage and tiered seating can work very poorly as the large meeting room. That style room can create a sense of distance between panelists and the audience and discourage questions and dialogue from the audience. It is helpful to have panelists and speakers on the same level as the audience, with several microphones in the audience to encourage their active participation in sessions. • Six or seven break-out rooms for small group sessions. At various points in the program, participants divide into small groups to accomplish a variety of purposes. The small group sessions are designed for no more than 20 people. Each break-out room should be large enough to accommodate 20 people comfortably. Occasionally you may find it necessary to use the large plenary room for one of the small group sessions. In that instance, you will wish to make certain that the group occupies only one corner of the large room and that chairs are arranged informally. To the extent possible, these rooms should be located in close proximity to the plenary session room. Given the tight program schedule you should try to minimize the participants' travel time between sessions. 6 . Scheduling of Institute The model training program we are proposing in this trainer's guide involves a 2-1/2 day time period. We find that in order to accomplish the goals of this program a certain dynamic interaction among participants must take place. This interaction begins at a low level on the first day. During the second day participants interaction increases, producing a high level of, energy and enthusiasm. The third day can be viewed as a winding down period. In scheduling an institute of this sort, it is important to realize that it takes a day for people to get to know each other and work together. It is equally important to realize that people will begin leaving and/or winding down two or three hours before the formal end of the program. The program format described in this manual is very intensive and involves few breaks. It can be exhausting for participants. We have tried to intersperse a number of quite informal sessions to allow participants to relax. One of the pilot Institutes tested by The Conservation Foundation stretched over a 3-1/2 day period and involved an afternoon break one day and an evening break the next day. This may be desirable from a programmatic viewpoint, but will cost more money and will require more of a time commitment on the part of participants. -22- Using a 2-1/2 day program, there are a number of ways you might schedule the Institute: a) three week days; b) one weekend day and two week days; or c) two weekend days and one week day. It's up to you to select the schedule which you believe will best meet the needs of the majority of your participants. You may want to consult your steering committee (see page 24) on this before making a final decision. Based on our experience, we would argue for option c - two weekend days and one week day. We recognize that weekends are special days and that people are reluctant to give them up. However, we also recognize that many of the participants you invite (particularly the local citizen leaders and local govern- mental officials serving in a voluntary capacity) have full time jobs unrelated to flood hazard management. Therefore, an Institute scheduled to include weekdays will require these individuals to take off from work in order to attend. We feel option c offers the best compromise and since it involves only one full weekend out of 52, we believe you shouldn't meet with too much resistance. The program described in this manual can be divided into 2 to 2-1/2 hour modules and run for a local community over an eight or nine-week period. Sessions could be held in the evening to maximize attendance from the community. We would advise that such a training course be designed for no more than 30 people, breaking into two small groups when appropriate. The advantages of such an approach are reduced travel and per diem costs, and improved ability to reach a larger group of people in a single community. The disadvantages may involve reducing the dynamic interaction among participants who would otherwise have been closeted with each other for a short intensive time period. Many participants may miss several sessions and not get as much out of the program. We have not yet tested this approach and if any of the readers of this manual choose to do so we would appreciate receiving comments. § r -23- B. PROGRAM DEVELOPMENT 1 . Modifying the Model Program The Institute program presented in this training manual is a model that has been revised after being tested in two different parts of the country, and with two slightly different formats. In many instances you will be able to use the program exactly as designed. In other instances, modification may be in order. Some of the questions you will wish to ask in evaluating the model program's applicability to your situation are: • How closely will the target audience from my state or region resemble the audience for which this program was designed? • If the audience will differ from the planned audience, what are the programmatic implications? • How sophisticated and knowledgeable is the audience in my state or region likely to be concerning the NFIP program or the relationship of natural resources to hazard mitigation? (Remember, if you are inviting only two or three carefully chosen people from targeted communities, they might be very sophisticated indeed!) • What is the nature of the flooding problems faced by communities likely to attend the Institute? • What is the nature of the natural resource base of communities in my region? Depending upon how you answer these questions, you may wish to consider a variety of actions in modifying the program. • We have often found it helpful to plan an optional pre-institute tutorial that takes place during registration. This pre-institute program may cover issues not addressed during the Institute, but which participants need to understand to benefit from the Institute. A pre-institute tutorial, as we have used it, is designed to help bring the audience to a basic common level of knowledge as they start the training program. • You will wish to consider the range of alternative concurrent workshops offered by the program, dropping some workshops and adding others. -24- • You will wish to examine carefully materials prepared ( for the Institutes--case examples and maps — and determine if you need to develop materials that more closely reflect the flooding problems and natural resource base of your region. (Remember, the case examples and the maps are simply teaching tools that are used during the Institute. They need not exactly approximate the real life situation of communities in your region. ) The decision to make modifications to the model program must be made early in the training institute planning process. If major modifications are contemplated, you will have to devote staff time to revising the model student manual possibly including case materials and maps. You should make the modifi- cations with the advice and assistance of a steering committee comprised of individuals who are both knowledgeable about flood hazard management problems in your region and representative of your target audience. 2. Steering Committee . Selection of the Steering Committee is an important task, as this group serves as the major advisory body to you, the Coordinator. The Steering Committee will have major responsibilities both for identifying participants and resource people and for modifying the Model Training Program to best meet the needs of the geographic area represented at the conference (multi-state region, state, or community). If you've done a good job choosing your committee, the members should be able to provide you with valuable assistance throughout the planning period and can contribute significantly to the success of the Institute. a. Selecting the Committee Ideally, the Committee should include between 20 and 25 individuals. They should represent the broad range of interest groups and geographic regions you hope to attract to the Institute. Thus, you should be looking for bankers, insurance agents, civil defense agents, social service representatives, environmentalists, developers, planners, local officials, state officials, and FEMA regional officials. (See participant section - page 28 .) If you're conducting a multi-state or Regional Institute, you should ensure that the committee members represent fairly the various states involved. You should select your committee members on the basis of several key criteria including: 1) representation of the con- stituencies and the geographic areas you are trying to reach in the training Institute; 2) familiarity with flood hazard management and/or public involvement in community environmental -25- decision making; 3) willingness to invest considerable time and energy prior to the Institute helping you to identify potential participants and resource people and; 4) willingness to play a central leadership role both during and following the training Institute. When inviting these individuals to participate, stress the importance of their involvement and make sure they understand the level of commitment expected of them. The most active committee members are those who understand from the start and willingly accept their assignments. An approach we recommend you consider in selecting your Steering Comittee is to first identify those 12-15 geographic areas (watersheds or coastal community clusters), which you would like to "target" for the Institute and then identify an individual in each of those geographic areas who could best assist you in identifying and inviting potential participants from that area. That individual might be an active environ- mentalist, a member of the League of Women Voters, a realtor, a professional staff member of watershed authority, etc. What is most important is that the individuals selected meet the general criteria mentioned in the previous paragraph and that they be able to identify and persuade key people in their area to participate at the Institute. These 12-15 individuals should also represent a balance of the various interest groups being targeted. We offer no magic formula for selecting your steering committee members or determining an optional balance of interested groups. In some areas you may have to choose between several appropriate individuals representing different perspectives. In others you may discover one person who really stands out. Use your best judgment in selecting a group of people who you think can work well together and can provide you with essential assistance In addition to the 12-15 representatives of local communities, your Steering Committee should include the state FIA coordinator from each state being targeted, other prominent state-wide interest group leaders, and FEMA regional officials. The Steering Committee may comprise as many as 25 individuals, including your staff. Although this may sound like an unwieldy size, we have found that it need not be, and that the need for the right representation on the Steering Committee overrides concerns about the size of the group. Obviously, this approach to selecting a Steering Committee will require you to do some serious homework in advance. You will probably want to meet or talk with the FEMA regional officials, including the staff of the Insurance and Mitigation division, and the state FIA coordinator (s ) to get their assessment of the 12-15 geographic areas which are most important to target. These officials may even be able to provide you with some initial names of potential Steering Committee members who live in these areas. -26- We have found that contacting the state League of Women Voters chapter is often a good starting point for identifying steering committee members, when no other names have surfaced. For example, a call to the State League of Women Voters Environ- mental Quality chairperson might turn up the name of a League contact active in civic affairs in a particular watershed. That person may not be the right person for your steering committee, but is likely to be able to recommend names of other active civic leaders who might be appropriate representatives. Each person identified as a potential steering committee member should receive a formal invitation to participate on the committee even if you've already spoken with them over the phone. With the invitation letter you should include a brief fact sheet about the Institute, its primary goals and objectives, relevant background information, description of your organization, etc . b. The Steering Committee Role Once you've selected your Steering Committee, your next step will be to schedule at least one full-day committee meeting, at least 4-5 months prior to the Institute. You should schedule the meeting for a place convenient to the majority of committee members. If you're dealing with a large geographic region and the majority of members will be flying to the meeting, you might consider holding the meeting at the most convenient airport. This will reduce travel time to and from the meeting place and allow you more time during the actual meeting. On the other hand, if your region is small, you should select a meeting site which is centrally located and accessible by car. The Steering Committee meeting is intended to accomplish a number of objectives, the most important being to provide members with an opportunity to buy into the program and make it theirs. A face to face dialogue will help to establish a cohesive force among committee members, and enhances the credibility of your efforts by making certain that the program reflects the needs of the audience. Formal objectives which you will want to accomplish during your Steering Committee meeting include: (1) to explain the background and purpose of the Training Institute and the role of the Steering Committee members; (2) to obtain the input of committee members on regional goals and objectives and how these might be addressed at the Institute; (3) to identify (and perhaps modify) criteria for selection of participants and to develop a strategy for inviting potential participants; and (4) to review the model training program in detail, to suggest modifi- cations and to identify names of possible resource people to serve as speakers, moderators, workshop leaders, etc. -27- Although this list of objectives represents a great deal to accomplish in a single meeting, it can be done. You must, however, ensure that the meeting begins on time and that any extraneous discussion is kept to a minimum. In addition, it will help if steering committee members understand what they are expected to accomplish at the meeting and come prepared with questions and comments. We suggest that at least two weeks prior to the steering committee meeting you send a copy of the model training program to committee members. (The "Model Program Outline" included on pages 5-10, or something similar would be appropriate.) You might also want to send them additional reading material such as the Resource Manual or summary papers. Encourage committee members to read these materials carefully and come to the meeting prepared to discuss them at length. You will want to be certain the meeting begins with a discussion of the goals of the program and then quickly moves to an examination of participant selection criteria. You should never allow a discussion of the program before addressing and completing the previous two issues, since the program content cannot really be understood unless people clearly understand the goals of the training institute and the audience to which it's directed. Your agenda might be organized in the following manner: 1. Goals/Purpose (1 hour) — your presentation of overall objectives; committee listing of their goals; and discussion. 2. Participant selection (1-1/2 hours) — individuals; and — communities. 3. Program (2 hours) 4. Resource People (1/2 hour) (Discussion to be followed up by phone conversations.) 5. Follow-up role of Steering Committee (1/2 hour) — submit lists of potential participants who meet selection criteria; -28- recommend appropriate resource people for various sessions; and participate at Institute, serve as speakers, resource people, discussion leaders. Some of you may want to consider holding two Steering Committee meetings; one very early in the process to introduce the overall goals and objectives and to discuss participant selection, and another four to six weeks later to discuss the model program in detail. This may be a desirable option if your region is small (meaning travel time and costs are relatively small) and your committee members are willing to commit two full days to meetings. Those of you planning an Institute for a large geographic area, however, may discover the time and costs associated with organizing two meetings outweigh the benefits. Speaking of costs, you should be prepared to cover the travel and room and board costs of those Steering Committee members who have no alternative means of financial support. At a minimum, this will include your citizen representatives and probably any local officials. If state agency travel budgets are tight, you might have to cover some of these expenses as well. Most business and industry representatives and federal officials should be able to cover their own expenses. You might also want to offer some of your committee members a small consultant's fee ($100-300) to perform certain tasks, such as actively inviting qualified individuals in their area to attend the Institute. A personal invitation extended by one of your Steering Committee members is likely to be far more effective than either a letter or a phone call from you (unless, of course, you know the person). Thus, this approach of actually paying Steering Committee members to carry out some of your responsibilities might be a cost-effective measure, particularly if you're dealing with a large geographical area. 3 . Participant Selection . Perhaps the most difficult but also the most important task you'll undertake in planning for this Training Institute is that of identifying and inviting participants. You should get significant help from your Steering Committee, but you should be prepared to present them with a well developed strategy and essential guidance before putting them to work. a. Target Communities Your first step in selecting participants will be to identify those 20-25 communities which you want to "target" for your Institute. If you adopt the strategy we suggest for -29- identif ication of Steering Committee members, the geographic areas (watersheds or coastal community clusters) will have been selected by you before the Steering Committee meeting with the assistance of appropriate FEMA and state agency personnel. Yet,« within each geographic cluster, there will remain a number of choices concerning which communities to target. A given watershed, for example, may contain 50 to 100 communities. You will wish to target communities that you and your Steering Committee believe will most benefit from the Training Institute, and which can play a key leadership role in their geographic region. We suggest several criteria for selection of target communities, including: • enrollment in regular phase of NFIP (or about to enter the regular phase); • population of 10,000 or more; experiencing significant growth pressures; containing considerable amount of existing developable land in flood hazard areas; • experienced recent flooding problems (perhaps received a presidential disaster declaration); o in the case of a riverine community, shares a drainage area (watershed) with other communities which might be participating at the Institute; and 9 in the case of a coastal community, shares development pressures with other communities attending the Institute. These criteria are not intended to be hard-and-fast rules. Circumstances differ across the country. One of the tasks of your Steering Committee will be to evaluate target community criteria to see if modifications are appropriate. In your area for example, only a few communities might meet the size criterion of 10,000 people. Or if you are in a coastal area, you may discover that a community has not recently been flooded, but is a prime target for a major hurricane disaster. It's your job, working with the Steering Committee, to modify these criteria to best fit your regional situation. Recognizing that it's extremely unlikely you'll be able to attract all of the 25-30 target comunities which represent your first choice, we suggest you compile a secondary list of 15-25 communities which also meet your general criteria. You may choose to invite participants from this back-up list as some on your primary list drop out. -30- b. Identification of Participants Once you've identified your target Communities, you can begin the process of identifying and inviting participants from those communities. At this stage you should be able to rely heavily on your Steering Committee to provide you with names from a particular locale. Criteria which you and your Steering Committee should consider when selecting community representatives include: • individuals who have a constituency, formal or informal, back to which they can take information obtained at the institute; • individuals coming from a variety of diverse constituencies within a community; i.e., environmental, civic, governmental, business, etc.; • individuals who are actively involved in their communities and who have a demonstrated capability to disseminate information in a locality; and • individuals who indicate a commitment to pursuing follow-up activities after the Institute. If possible, you should try to get a minimum of two to three people (what we consider a critical mass) from each community who meet these criteria and also represent different interest groups — local government (elected or appointed officials), citizen groups, environmentalists, Red Cross , volunteers, and business (developers, insurance agents). In examining the criteria for target community selection, it may occur to you that several can be inherently contradictory. For example, a community which has experienced recent flood disaster may have an almost completely developed floodplain. It may be that the only opportunities for flood hazard mitigation are relocation or some sort of structural protection. Yet, those communities experiencing growth pressures, with some significant part of the floodplain still undeveloped (and, therefore, with the greatest opportunity for implementing non-structural flood control measures) may not have experienced a recent flood disaster with the accompanying heightened awareness of the need for new approaches. This training program is designed to address both corrective and preventive non-structural flood hazard mitigation strategies. Some of the greatest opportunities will arise, however, in communities that have either not yet developed, or are just starting to develop, their floodplain. For the reasons described above, your job in attracting participants from those communities may well be a selling job. -31- In order to get commitments from two to three individuals in each community, however, you will probably have to invite anywhere from five to ten people. Locating those five to ten individuals will require considerable energy and some creative thinking. To make your job easier, you should make a list of all those types of people who presently have an interest in community flood hazard management and those who might be interested if the issue were presented in relevant terms. Our initial attempt at a list looks like this: Interested Local officials Civil Defense officials Volunteer disaster response groups Planners Residents of flood hazard areas (if they perceive a real danger) Might be interested Environmentalists Bankers Insurance Agents Realtors Developers Residents of flood hazard areas (who haven't experienced a serious flood) Taxpayers Recreation is ts Educators As you can see, the list of potentially interested groups is larger than the list of groups which traditionally express an interest in community flood hazard decision making. You probably won't have too much difficulty convincing people on the first list that the Institute will be relevant for them. However, you may have to expend considerable time and energy persuading people from the second list that it will be worth their time (and in some cases money!) to attend. We suggest that you spend some time thinking about the groups on the "potentially interested" list and what reasons you might propose to convince them it's worth their time to attend. Compile a list of reasons for each group and perhaps test it out on your Steering Committee. For example, environmentalists are concerned with protect- ing natural resources such as wetlands, barrier islands, dunes, wildlife areas, etc. Many of these natural resources, if protected, also serve hazard mitigation functions. Your focus in communicating with environmentalists might be to highlight this link between natural resources and hazard mitigation and explain how the training institute will address this issue. For the bankers you may wish to stress the risks associated with mortgages on properties located in flood hazard areas which aren't adequately regulated. With taxpayer groups, you may stress the hidden costs of police, fire and emergency services, and damages to public infrastructure which taxpayers incur in the event of a flood. And with civic groups you may wish to stress the human costs of the post-disaster period. -3 2- c. Scholarships Many individuals may not be able to attend the Training Institute without some form of financial assistance or scholar- ship. This applies particularly to local citizen leaders who are already being asked to give up at least one work day for the Institute and have no alternative resources. Local officials, many of whom are volunteers or who operate on shoe-string budgets, may also require financial assistance. Because the participation of these individuals is essential to the success of the Institute, you should be prepared to offer full or partial scholarships to as many of them as possible. Businessmen — realtors, developers, bankers, etc. — generally can write off the Institute expenses as a business expense. Therefore, except under unusual circumstances, we suggest you reserve the scholarship funds for those in other categories. If you are planning an Institute of 100-125 people, we suggest you set aside sufficient funds to cover the room, board, and travel expenses of approximately 50 people. (For a smaller conference you should allocate a smaller number of scholarships). Based on a per diem rate of $50 and depending on the size (hence the travel cost) for your region, your scholarship budget could range from $7,000 to $14,000. You might stretch these funds to cover more people by offering partial scholarships, encouraging car pooling, etc. Participants to whom you wish to offer scholarship funds should be notified in the initial letter of invitation that scholarships are available. You might encourage participants to contribute as much as they can, but make it clear that their attendance is important and that you will make every effort to cover full costs if necessary. d . Invitations Having compiled a list of five to ten individuals in each of your 25-30 target communities who meet the general criteria, as well as a list of other state or regional people you'd like to invite, your next step is to issue letters of invitation. These letters should go out at least three months prior to the Institute. In some instances, those you're inviting will already have been contacted by a Steering Committee member to determine their interest. In other instances, they will know nothing about the Training Institute. In either situation the invitation letter should clearly outline; 1) the purpose of the Institute, 2) where and when it will be held; 3) why the individual has been selected; 4) why it's important that he/she attend; 5) what the registration and room and board costs will be; and 6) what you expect from them (i.e., when you want them to let you know if he/she's coming.) Be sure you enclose a registration form. -33- Included in Appendix A, attached, are sample invitation letters and Registration Forms which you might want to modify for your own purposes. Rather than sending a standard letter to every invitee (which we recognize is easier), we suggest you modify the letter for each of the major interest groups (local officials, busi- nessmen, environmentalists, etc.) including for each typed letter a paragraph which highlights how flood hazard management and the Training Institute are relevant to the specific interest group. You will also want to send a slightly different letter to those you expect to request scholarships, describing the procedures and including the application forms. Although these modifications mean extra work for you and your staff, we believe your efforts will be rewarded. We suggest that, in order to maintain some control over the number of people attending, you consider some of the following guidelines: • State a registration cut-off date to encourage early registration (e.g., "registrations will be honored in order of their receipt — on a first come, first served basis" or "no registration will be accepted after December 1"). Also to encourage early registration, announce a date on which pre-Ins titute (background) materials will be mailed and specify that registrations must be received before that date. • If you want to avoid handling money at the conference, specify that only advance, mailed registrations accom- panied by full payment will be accepted. • State that checks be made out to your organization. • If appropriate, say "no partial registrations will be accepted . " • Also be sure to specify rules for refunds (in case of registration cancellation) in the instructions (e.g.; "requests for refunds received before xx date will be honored in full. No refunds can be made in response to requests received after xx date.") • If the conference is by invitation only, and you don't want the invitation passed on to someone else, so specify. If you want the invitee to attend for the entire conference period, or else not at all, that also should be made clear in the invitation or instructions . -34- • Along with registration information, provide information on accommodations. If the conference is to be held at a special facility where room and board are included and participants are expected to stay on the grounds, say so specifically. When appropriate, also say that many of the rooms are doubles. Provide a space on the registration form for people to indicate preference for a single room or a specific roommate. • For more traditional conference facilities in standard hotels, explain clearly in the registration information how reservations will be handled. You should make arrangements for the group with the hotel, and then make each participant responsible for his/her own reservations through direct dealings with the hotel. This helps avoid headaches and unnecessary charges (for no-shows, etc.) to you. In the registration form, provide clear instructions on necessary procedures (cut-off dates for reserved block of rooms, etc.) and a hotel reservation form if possible. If the conference is being held at a particularly nice place, include a brochure describing it. You might also consider including in the invitation letter a basic fact sheet on flooding problems in your region. This fact sheet, which you should compile with assistance from FEMA Regional Office and/or state FIA Coordinator, ought to include data on the number and frequency of floods over the past 50 years, number of lives losts, value of property damaged, public expenditures (Federal, state and local) for flood disaster response and recovery as well as other pertinent facts. This sheet could serve to dramatically highlight the real dangers of flooding in your area. e. Follow-up Correspondence Once the invitation leters have been sent, you should send a copy of the full invitation list to your Steering Committee members indicating which individuals are located within the particular geographic area (state, watershed, county) which the member represents. Ask your Steering Committee members to follow-up on these individuals with phone calls approximately two weeks after the letters were mailed. When calling, they should first check to be sure the letter arrived. Then they should find out if the invitee has any question and if they're planning to attend. Encourage your Steering Committee members to be as persuasive as possible. The job to be accomplished at this point may be a selling job, but if the invitee seriously isn't interested or has a legitimate reason why he/she won't be able to attend, ask them if they could suggest other possible invitees. Give Steering Committee members a week to make these follow-up calls. -35- If you don't hear from your Steering Committee members within a reasonable period, check to see what progress they've made. Don't assume just because they're nice people and appear interested that they in fact will complete their assignments. After all they're human too and subject to the same distractions that we all face despite their good intentions. If you discover that some of your Steering Committee members have not completed their assignments, find out why and if there is any way you can help them. It may be they've overextended themselves and simply can't find the time to make the calls. If these individuals are volunteers, you may decide it's easier just to make the calls yourself. However, if you've agreed to pay these members for their services, you have a right to expect more from them and should insist they follow through. The more helpful your Steering Committee is, the fewer phone calls you will be required to make. However, you should always assume that you and your staff will spend a substantial amount of time on the phone. A month after the first invitations have been extended, you should have a good sense of how successful you've been in attracting participants. Based on the early results you should decide at this junction whether or not to extend additional invitations to individuals from communities on your fall-back list. When in doubt we suggest you send out the second round of invitations making it clear to invitees that acceptances are made on a first come first served basis. This approach will better insure that you will attract the desired number of par- ticipants at the Institute and if in fact you discover that you're liable to be over registered, you'll have a legitimate excuse for turning the late registrants down. 4. Resource People a. Selection The selection of appropriate resource people to play a role during the various Institute sessions is another task where Steering Committee members can be most helpful. If you glance at the model program, you'll note that the program calls for a large number of resource people. Although it may seem tempting to use many of the same people in several slots on the program, we would caution against "over-using" any particular resource person. First, it's not fair to the individuals—even though they initially consent to sit on three separate panels, they may find themselves exhausted and resentful once the Institute is underway. Second, it's not fair to the audience — most individuals will represent a fairly narrow perspective and it gets boring to hear it repeated for the third time. -36- Use your first Steering Committee meeting as an opportunity ( to get members' suggestions for possible resource people. Some of the key resource people such as speakers and workshop leaders you should be able to identify at least three to four months prior to the Institute. Prominent individuals have busy schedules which fill up quickly. Therefore you should try to tie these individuals down as early as possible. Don't overlook your Steering Committee members. Most of them could serve as resource people in a number of slots. You will probably also want to select some of your resource people, particularly panel members representing local perspec- tives, from the list of registered participants. So you may decide to wait a bit longer to fill some of these slots. However, you should try to have your list of resource people fairly well set at least three months prior to the Institute, recognizing there will inevitably be last minute changes. The criteria to use when selecting resource people will vary somewhat depending on the role you want them to play. A brief discussion of these is included here. (Refer to page 48 for a more detailed discussion of the various types of sessions and resource people required.) Speakers . Look for individuals who are not only well respected in their field but more importantly known to be 4 good public speakers - individuals capable of speaking "English" to a lay audience. A fancy title or impressive reputation is not enough to keep participants interested. You also want someone who's willing to limit themself to the specific time and topic scheduled for that period. Panel or Roundtable Members . These individuals will be expected to represent one of a range of perspectives on a particular topic. Therefore, they should be individuals familiar with the topic and capable of succinctly and spontaneously representing their perspective. Moderators . A good moderator is essential to the success of a panel discussion. These individuals should be very familiar with the topic of the panel and cognizant of the key questions which the panel should address. They should be individuals capable of maintaining a low profile (you don't want your moderator giving a speech) but also assertive enough to cut off a long winded panel member or to redirect discussion when it has gone off track. When the panel is structured as a roundtable discussion, it is particularly important that the moderator be substantively knowedgeable . The success of the roundtable format depends upon the ability of the moderator to pose the right questions at the right time. i -37- Workshop Leaders . The success of any small group session (workshop) depends almost entirely on the workshop leader. This individual is the one responsible for introducing and closing the session, keeping track of time, encouraging full participation of all group members, and ensuring that major goals of the discussion are accomplished. (These responsibilities are described in more detail on page 35.) Individuals serving as workshop leaders should have considerable experience working with small groups and preferably be knowledgeable about the topic of discussion. As you'll note in reviewing the model program, some of the workshops call for a mini-lecture or presentation by a knowledgeable resource person followed by a group discussion. If at all possible, we recommend that the designated workshop discussion leader for these sessions be someone other than the resource person. This will make it easier to keep the pre- sentation brief and the discussion on target. However, if you run short of qualified discussion leaders or otherwise decide to assign the resource person as discussion leader for these sessions, we urge you to brief them thoroughly on the purpose of the session and their role and responsibilities as discussion leader. b. Invitations As was mentioned earlier, the majority of resource people should be invited as early as possible to ensure that they reserve your dates on their calender. The initial invitation letter which should be as personalized as possible, should describe the general goals of the Institute, when and where it will be held, who will be invited, what the program will cover and what role specifically you want them to play. Let them know that a more detailed briefing package will be sent to them later should they accept the invitation. (A sample invitation letter is included in Appendix A. ) Along with the initial letter, you should send a brief summary of the program and a more detailed fact sheet on the Institute. Also include all the registration materials sent to participants. Early on you should request they send you a biographical sketch and an indication of what kinds of audio-visual equipment they may need. c. Briefing At least a month in advance of the Institute, you should send all resource people a Briefing Package which describes their role in more detail. In this memo you should include information on: (1) the format of their session, (2) the specific goals and objectives of their session, (3) how their session is intended to fit into the overall program, (4) what kind of audience (size, composition, level of sophistication) they -38- will be working with, (5) major questions to be addressed, (6) other resource people serving in the same capacity; and (7) any other information you think is relevant. Samples of briefing memos are included as guidance in Appendix A. A most important part of briefing speakers will take place in person just prior to the Training Institute. You should plan on scheduling a 1/2 day meeting with major resource people immediately preceeding the Institute. (You may wish to schedule breakfast or luncheon briefings during the Institute with persons playing relatively minor roles in the Institute.) The half day meeting should begin with a complete description of the goals and the objectives of the Institute and the manner in which different parts of the program fit together to accomplish these objectives. Depending upon your available staff resources you will then wish to break into several separate groupings, each of which will focus on a specific part of the program. For example: • The participants in the opening roundtable discussion should be given an opportunity to see the film, and develop a strategy to bring out major points for discussion (see Lesson Plan No. 2). • Facilitators of specific small group sessions should explore ways to help those sessions accomplish required goals. You should plan to discuss with these workshop leaders : 1) The specific goals and objectives of their session; 2) The materials you want them to use (maps, case studies, etc.); 3) Specific procedures you want them to follow (use of exercises, slides, brainstorming); and 4) Products you expect from the workshop. The detailed lesson plans, which follow this section of the manual, provide guidance on how to conduct each session, as well as points you should make in briefing resource people. You might even consider staging a trial run of some of the informal sessions in order to give workshop leaders a clear idea of how you want them to conduct the session and what you want them to accomplish. d . Funding You should be prepared to pay for the room, board and travel expenses of those resource people who indicate they'll need financial assistance. Given the large number of resource s i -39- people required by this program, your speakers' expenses could be very high. To stretch your travel budget as far as possible, try to select resource people from within the region. Keep in mind that most Federal and state officials have travel budgets that can cover at least some portion of their expenses. Encourage them to use their resources, pointing out the limited nature of your scholarship funds. However, if a key state official is truly unable to attend without financial assistance (e.g., no out of state travel funds), you may decide he's/she's important enough to fund. Only in extremely rare situations should you agree to pay resource people an honorarium. These additional costs could quickly strain your budget and in most instances you should be able to find another qualified individual who is willing to participate without receiving any fees. 5 . Pre-Conf erence Mailing A pre-conf erence mailing should always go to registered participants 10-14 days before the scheduled meeting. This mailing first serves to confirm to the participant that their registration has been received and that they are expected at the conference. Included in this mailing should be: 1. An updated — or final — conference program providing full information on speakers and exact time and location (designated room) for each program session. On the conference program, be sure names and titles of speakers, moderators, etc. are spelled correctly. When in doubt, make a call or check correspondence. Where several people are listed together (panelists, etc.), list them in the order of their presentations, if possible. If that isn't settled when the program is printed, list in alpha- betical, rather than arbitrary, order. 2. An alphabetical list of participants registered (include speakers, moderators, etc.) as of a certain date. Unless circumstances dictate otherwise, it's safest to use no titles (Mr., Dr., or Ms.) on lists --just full names with correct, official titles on the next line. If you do use titles, be sure you call all Dr.'s "Dr.," and use either Miss and Mrs. or Ms., not Ms. and Mrs. 3. Biographical summaries of conference speakers, moderators, etc. (or of all participants, if it's a small working group) in alphabetical order. -40- 4. An information sheet, describing how telephone calls will be handled and providing the conference phone number and address; relevant information on trans- portation options to the conference site and parking availability and cost (include a map of routes to the site or to parking places, and/or a floor plan of the conference site, if that seems useful). Mention appropriate dress, particularly if the site isn't a standard hotel or office building. 5. Substantive background materials — including The Community Action Guide Summary (Appendix I), accompany- ing study questions and any other relevant information. 6 . Training Materials The Conservation Foundation has prepared a series of training materials to be used in conjunction with the Training Institute. These materials include: • Resource Manual entitled " Flood Hazard Management and Natural Resource Protection: Community Action Guide" ; • Summary of the manual entitled " Flood Hazard Management and Natural Resource Protection: Community Action Guide Summary" (Appendix I); • Model Student Manual; (Appendix G, H) • Mapping Exercise for small group sessions entitled The Nature of Flooding and the Special Role of Ecological Resource in Flood Hazard Mitigation, Lesson Plan No. 5 (Appendix B); • Slide presentation entitled "Flood Hazard Management: Three Stories," (Script, Appendix C); and • Simulation/game entitled "Planning for Acts of God and Nature" (PAGAN) (Appendix E). We describe each of these elements in detail in this section to give you a good sense of how they might fit into the overall Training Program you ultimately design. a. Resource Manual . This approximately 300 page document addresses in detail the major issue relating to community flood hazard management and natural resource protection. Topics addressed include the nature of flooding and flood hazard management, Federal role in flood hazard management highlighting the NFIP and the floodplains Executive order, the -41- role of natural resources in mitigating flood damages, community strategies on managing flood hazards, legal and institutional considerations of flood hazard management and public participa- tion in community flood hazard management programs. The manual is intended as a comprehensive guide useful to community leaders (not the general public) interested in designing or refining their community's flood hazard management program. The resource manual is generally handed out at the Institute to be used by participants upon returning to their communities. The manual is carefully subtitled and indexed so that the reader can locate subjects of interest easily. We suggest that you, as the Institute coordinator, read this manual thoroughly. At various points during the training program you should be prepared to point out sections of the manual that provide additional information. The manual is available from your FEMA Regional Office. b. "Community Action Guide Summary" . This shorter piece (approximately 7 5 pages) is a summary of the information presented in the Resource Manual. It is intended to be used by partici- pants as background reading material in preparation for the Training Institute or by other individuals desiring a quick overview of the major issues. We hope that if the participants read this material carefully, we may better ensure that our diverse audience begins the program with a common level of knowledge. This booklet is generally mailed to participants two to three weeks prior to the Institute along with a staff list of study questions. Participants should be encouraged to read the materials and to know the answers to the study questions before arriving at the Institute. A copy of the "Community Action Guide Summary" is included in Appendix I. c. Model Student Manual . This manual is used as the Institute workbook and is essentially an annotated version of the Training Program intended to be the participant's primary working guide throughout the Institute. It includes background information on the Institute sponsors, a summary of the program, a detailed version of the program (color coded by day), review questions with space for notes following each session, exercises, case study materials, relevant charts, and a glossary. (See Appe nd i x G , H ) Because it is only a model, you will want to modify the workbook to reflect your particular program as well as include additional information you feel would be useful for participants. For example, you might want to include a bibliography of key resources, list of agency contacts, biographies of speakers, etc. -42- It is your responsibility to reproduce the workbook. You should wait as long as possible before doing so in order for the workbook to reflect last minute program changes. However, don't wait too long — the workbook is a vital element in the Training Program. d. Mapping Exercise Materials . Two sets of maps and related workshop materials (one for the Coastal Institute and one for the Riverine Institute) have been developed for the Institute sessions entitled "The Nature of Flooding in Coastal/Riverine Communities and the Special Role of Coastal/Riverine Ecological Resources in Flood Hazard Mitiga- tion." Each set of materials includes: (1) actual USGS quad sheets from a specific geographic area, (2) mylar overlays depicting soils, current land use, current zoning, flood hazard and wetlands information; and (3) workshop handouts which provide participants with detailed information about the maps and how to use them. Copies of these materials are included in Appendix B of this manual. Additional copies are available from FEMA, Division of Training and Education. e. Slide Presentation . "Flood Hazard Management: Three Stories" Is 17 minute slide tape presentation which focuses on three communities (Montgomery County, Texas; Baltimore County, Maryland; and Sanibel Island, Florida) exploring their individual solutions to community flooding problems. Although presenting a great deal of factual information, the presentation also functions as an inspirational piece illustrating what can be done when a community is truly committed to resolving problems. In the model program, the slide presentation is scheduled to be shown on Day Two at 8:30 in the morning. We suggest you review the slide presentation early in the Institute planning process. Copies are available from your FEMA Regional office. ' (Refer to Lesson Plan #6 for detailed discussion of slide show equipment needs, etc.; the script is included in Appendix C.) f . Simulation/Game . Planning for Acts of God and Nature, PAGAN, is a 3 hour simulation exercise designed to model a community flood hazard decision-making process. It comes in both a coastal version and a riverine version and can accommodate anywhere from 6 to 150 players. Participants are assigned to various roles and then asked to make decisions concerning the desired level of flood protection in their particular community. Community descriptions and role descriptions are provided as part of the game. (See Appendix E) The simulation exercise is suggested as an optional element which you might include if you decide to expand the program. Or you might want to use it during a. one day follow-up session to the Training Institute. It works best with partici- pants who have a solid background in community flood hazard -4 3- management, so we advise that you not use it in the 2-1/2 day version of the program unless you have a fairly sophisticated audience. 7. Pre-Institute Checklist There are certain items which you should be sure are in order before the Institute gets underway. Be sure to check the Lesson Plans for each session carefully to determine exactly what kinds of audio-visual equipment and other materials you'll need. Following is a partial check list which you should review and possibly add to when making last minute preparations. • Movie--you may need to reserve in advance. Be clear on who's responsible for bringing it to the Institute. • Movie projector--can the conference facility provide one or should you rent one? If the facility is providing one, check to be sure it's available and in good working order as soon as you arrive. • Movie screen. • Slide projector with tape unit. Can the facility provide it or should you rent one? • Slide presentation and audio sound tape--be sure to order it from FEMA well in advance. • Additional slide projectors, overheads, easels, etc. for workshop leaders — check with each resource person at least a month in advance to determine what specific audio-visual equipment they'll need. • Extension cords — again does the facility provide them or shall you bring a few extras? • Newsprint (enough for all the workshops) . • Magic markers (dark colors), tape, push pins. • Name tags with participants' names and affiliations. • Extra name tags. • Typewriter. • Extra copies of Pre-Institute reading materials. • Evaluation questionnaires. • Maps or other materials to be used in workshops. -44- • Workbooks . • Resource Manuals. • Information materials on your organization. • Signs listing titles of workshop sessions to post at the entrance to the rooms. • Signs for speakers/panel members. 8 . Registration You should arrive several hours in advance and make certain all materials and equipment sent to the facility have arrived. This final check of the facility is important. Conference facilities have been known to switch rooms at the last minute; or to schedule a rock concert in the room next to yours! (Believe us--it's happened!) Pre-check all of the rooms. Make certain they are set up several hours before you need them. And make certain you won't be dealing with unacceptable competition for participant attention. The Registration desk should be set up at least two hours before registration is scheduled to begin. Be sure the space is adequate to accommodate wastebaskets, typewriters, registration materials, training manuals, promotional literature, etc. • At the registration desk, keep a list or index file of all pre-registered participants, noting whether or not they've already paid and if they've received any scholarship award. Be prepared to collect some registration fees at the door and have appropriate receipt forms if necessary. • We suggest that you hand out meal tickets or devise some other "fool-proof" method of keeping accurate count of how many meals are eaten at the Institute. This is one place where costs could get out of hand --since spouses, extra Federal or state agency people, etc., may not think to register at the beginning. 9 . Institute Evaluation An important element of conducting training programs which is too often overlooked is that of evaluation. Not only is it nice to get some direct positive feedback on what a great job you did, but it's also good to get some constructive criticism. After all, if you intend to stay in the business of conducting training programs, you'll want to know what techniques work best and which ones are less effective. -4 5- Included in Appendix F is a sample Evaluation Form which shouldn't take the participant more than 10 minutes to complete. Many of the questions are simple check offs which are quick and also easy for you to tabulate. The evaluation also includes a series of open-ended questions which allow the participant to be more thorough in his/her comments. We suggest that you set aside a definite time (1/2 hour) at the end of the Institute to allow participants to fill the forms out before they go home. This is the best way to ensure an adequate return. Some participants, however, may prefer to spend more time with their evaluation or have a night to "sleep on it" before writing their comments. Therefore, you should provide stamped self-addressed envelopes so these people can send their evaluations to you after the Institute. During the final sesion you should also provide participants with an opportunity to give verbal feedback on the Institute-- what he/she learned, what improvements could have been made, etc. This step increases participants' sense of "ownership" of the program and may also provide you with some immediate and well- deserved praise. 10. Post-Institute Follow-Up Following the Institute there are a number of additional small tasks you'll want to complete before considering your job to be over. First, you should send thank you notes to all those various resource people and steering committee members who contributed to the Institute. These letters can be brief but should express your appreciation for the considerable time and energy they've invested in making the Institute a success. Next, you should tabulate the results of the evaluation. The results will not only be of interest to you but many of the participants as well. Finally, you may also want to send a post- Institute mailing to all registered participants providing them with brief wrap up of the Institute. This mailing might include: • Updated list of all registered participants; • One to two page summary of the evaluation results; and • Summary of the follow-up plans developed at the Institute. -46- C. TIPS ON CONDUCTING THE INSTITUTE In addition to the myriad of organizational and programmatic details associated with planning this type of training institute, we feel it's important to note some key aspects of actually conducting the Institute. These include: 1) role of the Institute Director; 2) function and format of various Institute sessions (plenary sessions, small group discussions) including the special roles and concerns of moder- ators and workshop leaders during Institute sessions and optimal room arrangements for various types of sessions. 1 . Role of the Institute Director As we mentioned earlier in our discussion of staff and staff functions, you or someone from your staff will have to take responsibility for actually running the Institute. This person, who will essentially play the role of master of cere- monies throughout the Institute, should be someone who: 1) thoroughly understands the program; 2) is comfortable and effective working with large groups; 3) is willing and able to keep the program moving on a tight time schedule; and 4) is capable of making a creative last minute adjustment to the program if called for. Although the Institute Director may be someone other than the Institute Coordinator, he/she will frequently be the same person. The Institute Director may have additional responsi- bilities for briefing speakers and group leaders before the Institute. In briefing speakers the Institute Director will want to keep the following objectives in mind: • Each speaker, moderator, or small group leader must thoroughly understand the objectives of the Institute and the manner in which his or her part of the Institute helps meet that objective. • Each speaker, moderator, or small group leader must thoroughly understand the objective of his or her part of the program, including any products expected as a result of the discussion. • Each speaker, moderator, or small group leader must thoroughly understand the format, structure and time allowance for his/her part of the program. 2 . Function of Various Institute Sessions In the next section, entitled "Lesson Plans", you will find a detailed discussion of each Institute session with its specific objectives, format, scope and requirements carefully outlined. However, before getting to that level of detail, -47- it's important that you first understand the overall organiza- tion of the Institute program as we've designed it and the function of various types of sessions in the overall design. The structure of the Institute program proceeds in a logical progression. If you analyze the program, you observe that the flow of issues addressed is as follows: Flooding Problem I Goals for Resolution Natural Resource Solutions i The Federal and State Framework for Problem Solving i Alternative Local Strategies for Problem Solving The Role of the Public Community Decision Making: Tradeoffs The individual components of the program have been designed with the fundamental assumption that people learn more when actively participating in their learning than when passively absorbing information. We have, therefore: • Incorporated as few speeches as possible into the program design; • Kept speeches short; • Provided opportunities — even in plenary sessions — for active discussion of issues; • Provided a number of small group opportunities for participants to reinforce their learning by putting it to use. -48- a. Plenary Sessions Speeches : As you'll note, we've included very few speeches in the model program. We feel that except in rare instances, speeches tend to be boring and are, therefore, a relatively ineffective teaching mechanism. In those sessions of the model program where speeches are called for, we recommend that they be limited to 20 minutes. Any longer than this and you'll risk losing most of your audience to day dreams. It has been our experience that most speech subjects that are manageable in scope can be boiled down to a succinct time period. Requiring speakers to stick to a 20 minute time period will require them to think through ahead of time what the most important points are. The most interesting and useful information usually comes out in the question and answer period following the speech. As was mentioned earlier, in selecting a speaker, you should look for someone who not only has the substantive know- ledge but can convey the key points you want him/her to make in an organized and interesting delivery. When a particular speaker is recommended to you, you will want to question several people who have heard that person address large audiences. You will want to know: • Does the recommended speaker leave technical jargon aside? • Does the recommended speaker know how to distill major points from a complex subject and present them succinctly? • Will this potential speaker stick to a 20 minute time limit? • Is the speaker entertaining and lively? Roundtable Discussion : A second format we've used in plenary sessions (sometimes in combination with a speech) is the round- table discussion. The roundtable, like most panel presenta- tions, is designed to explore a diverse range of perspectives on a particular topic. However, we believe the roundtable can be a far more effective means than traditional panel presenta- tions to achieve this end. -49- Panel presentations, most of which involve four to five individuals each delivering a 10-15 minute speech, can be terribly boring. Interesting or important differences in perspectives between members of the panel are often lost during the transition from one presentation to the next. In contrast, the roundtable sessions used in this insti- tute are designed to involve panel members in a discussion with each other and the audience of critical questions posed by a moderator. When done properly, the roundtable discussion can produce a lively exchange of views, far more interesting to watch than a series of short speeches. At least two weeks in advance, members of the roundtable should receive a list of the general questions to be addresed during their session. They should be discouraged from drafting any prepared responses to these questions, however, since the moderator will be modifying the questions in order to elicit more specific answers. One of the functions of the roundtable format we suggest for this Institute is to involve the audience in asking the questions most relevant to them on the topics addressed. We normally suggest a format for the roundtable that involves: • A brief speech or film that lays out the issues to be addressed by the roundtable; • The speaker takes no questions, but sits with the panel who, along with the speaker* respond to modera- tor and audience questions; • The moderator then proceeds to address several questions to different members of the panel (including the speaker, where appropriate); • The moderator then opens for questions from the audience; • The moderator then interrupts audience questions and answers, where appropriate, to follow up with questions that will develop better understanding of the subject. A key to the success of the roundtable is the moderator. It's essential that this person be substantively grounded on the issues being discussed to ensure that major points are addressed. In a way, the moderator can be viewed as an investigative reporter whose job it is to get to the bottom of a problem by addressing more and more specific questions to the interviewees (panel members). -50- The moderator should have a clear understanding of what's to be accomplished by the roundtable and must walk a fine line between letting the audience take over the direction of discussion and being certain the session accomplishes its objectives. The moderator must not be afraid to: • Take control of the session by cutting off lengthy discussions ; • Defer irrelevant issues; • Request that members of the audience ask questions, not make speeches. However, the moderator should also recognize that many of the more interesting issues are brought out during audience questions and answers, and that audience control of the program means audience involvement and learning. We strongly advise that all participants in the round- table discussions be briefed at least two weeks in advance on the purpose and format of the session. Before the Institute begins, the moderator should bring his/her group together to review his proposed strategy, to decide which questions to ask, who to call on first, etc. The combination of adequate advance preparation and a skilled moderator should be suffi- cient to ensure the success of the roundtable. Reactor Panels : Looking over the program, you'll note we've scheduled a "reactor panel" for one session involving a film. Essentially a modified version of a roundtable, the purpose of this panel is to solicit reactions from a range of interest group representatives to the major points made in the film. Immediately following the film, the moderator will begin dis- cussion by summarizing what he/she believes are the major issues raised in the film. Then he/she will pose key questions to members of the panel, soliciting their views. Questions from the audience will also be encouraged. Again, the moderator should be someone with considerable substantive knowledge about flood hazard management and capable of asking appropriate probing questions. Prior to the session, the moderator and panel members should view the film. The moderator should then discuss with members of the panel the key issues raised in the film and how these should be addressed. -51- Room Arrangements The set-up of the room in a plenary session is an impor- tant detail which you should not overlook. Factors such as how the chairs are arranged, where the speakers' podium and panel member chairs are located, and where the microphones are placed can all contribute to the success or failure of a plenary session. • Your objective in arranging seating should be to bring the audience as close to the presenters as possible, enhancing their physical involvement in the discussions. • If possible, chairs should be arranged in a wide semi-circle in front of the speakers platform allowing sufficient aisles for easy access (see diagram I). Diagram I Desirable Room Arrangement Less Desirable Room Arrangement For any lengthy plenary sessions, you should consider seating participants at tables to provide them with a place to write and to rest their elbows. Most con- ference facilities should have narrow tables which serve this purpose well. However, if your only choice is wide tables which would require significant space and spread participants too far back in the room, you might decide not to use tables at all. • We recommend that the chairs be unattached to the floor to allow greatest flexibility. • The speakers' platform and panel members' chairs should be set on the same level as that of the audience. This arrangement creates a sense of intimacy and/or equality between the presenters and the audience rather than the sense of separation or superiority accomplished by an elevated speakers platform. • If possible, chairs for members of panels and round- tables should be arranged so that the individuals can see each other, enhancing their communication. -52- • If the audience is large, microphones should be located at convenient locations in the room to enable participants to ask questions which everyone can hear. Note ; You should advise all respondents to repeat the audience questions before answering them. b. Small Group Discussions A large portion of the training program is devoted to small group discussions which we feel are the most effective learning environments. The major purpose of all these dis- cussion groups is the mastering of a particular subject. As we'll point out, however, the specific objectives of the various discussion groups differ significantly and it's important to understand these differences in order to brief resource people and discussion leaders. Training Workshops ; Training workshops are those designed to enable participants to develop or refine specific skills. They involve a very specific format (definite tasks to be accomplished), considerable period of time (2 hours), and require the use of specific tools prepared in advance. There are two such training workshops included in the model program: "The Nature of Flooding in Coastal Communities and the Special Role of Coastal/Riverine Ecological Resources in Flood Hazard Mitigation" (Lesson Plan No. 5), and "Designing a Flood Hazard Management Program in Coastal/Riverine Communities" (Lesson Plan No. 15) . A great deal of material needs to be covered in each of these workshops, so it's essential that the workshop leaders be well briefed on how to conduct their sessions. We suggest that workshop leaders and major resource people for these sessions be put through an actual training session using the workshop tools. Detailed discussion of the format and procedures of these sessions can be found in the Lesson Plans section of this manual. General guidance for all small group discussion leaders is included later in this section. Information Workshops : The purpose of these sessions is to provide participants with additional information on a particular subject. The format thus involves a brief presentation (15-20 minutes) by an expert on the topic followed by questions from the audience. -53- Workshops falling into this category include: • Flood Hazard Management: Issues and Programs (Lesson Plan No. 10) • Local Strategies for Flood Hazard Mitigation: Case Examples (Lesson Plan No. 11) • Issues in Public Participation (Lesson Plan No. 14) Although the general topic will be determined in advance, the specific direction of the discussion will depend on the interest and concerns of both the presenter and the participants. We suggest that the discussion leader (who may or may not be the resource person) go around the room asking participants to state their background on the issue and state what they'd like to cover in the workshop. Based on these comments, the presenter can then decide how to tailor his remarks to best suit the needs of the audience. Working Groups : A third type of small group discussion involves participants from a common geographic area (state, watershed, community). These groups, which we refer to as "working groups", meet several times during the course of the Institute providing continuity and a clear focal point for the Institute. The purpose of these sessions is to enable participants sharing common geographic conditions to discuss issues of common concern and, more importantly, to develop specific follow-up activities to address these issues. These are action oriented sessions with a specific end-product expected. The role of the facilitator in these small group discus- sions will be to review the objectives of the session and to involve all the group members in the subsequent discussion. The facilitator will not be expected to make any formal presentation although he/she may offer the group the benefits of his/her expertise or experience when appropriate. The individual selected to head these small group dis- cussions should be someone very familiar both with the geographic area and the substantive issues of concern. If these groups are organized according to state, you might consider appointing two co-leaders - the state Flood Insurance coordinator and a statewide citizen leader. For a smaller geographic region, you might consider appointing a staff member of the appropriate basin or watershed commission or an informed local official. Again, it is important that these facilitators be briefed well in advance on their role and responsibilities as group discussion leader. -54- Basic Procedures for Discussion Groups. Regardless of the specific objectives of a discussion session, there are a number of general procedural steps which all discussion groups must follow to ensure that the discussion moves smoothly. These include: 1. Define terms and concepts . Before beginning any discussion, it is essential to define new terms so that all participants understand their meaning. The discussion leader should keep a list of these terms on newsprint in the front of the room and add to it throughout the session as appropriate. 2 . Establish discussion goals; Identify major themes. The purpose of this step is to give participants a sense of the overall discussion and the desired out- comes. The discussion leader should review the session goals, allow participants to modify these goals, and then get a general group consensus about the nature of the discussion to take place. 3. Allocate time . Within the time allotted as to the session, the group should assign priorities for how the time is allocated. If a speech is scheduled, how long should it be? If questions are to be considered, which ones are most important to discuss first? Too often a discussion group will spend so much time on minor topics that major topics are not adequately addressed. The discussion leader should adhere to this time allocation as closely as possible or he/she might choose to appoint an independent "time keeper" to keep the group on schedule. 4. Discuss major themes and subtopics . Within the time allocations agreed to by the group, members will participate in a discussion of key issues. Controversy should be encouraged to increase the involvement, excitement, and fun of group members. 5. Integrate materials . An important step in any dis- cussion group is to provide a context for the material being discussed. For example, how does the material covered in one session relate to topics discussed earlier or to be discussed in subsequent sessions? The discussion leader has an important role here in summarizing major themes and pointing out how they substantiate, amplify, or possibly contradict pre- viously made points. * % -55- 6. Apply the materials . Group members should be clear on how the materials covered on the workshops relate to their own personal situation. The dis- cussion leader should ask participants to discuss how they might apply the specific information presented to their own communities. 7. Evaluate the quality of discussion . This is a particularly appropriate step for the "working group" sessions which will meet several times through- out the institute. Participants should be asked whether or not they feel the group has achieved its primary goals and how subsequent discussions might be improved. Guidelines for Small Group Discussion Leaders The purpose of discussion groups is for people to learn from their discussion and interaction with one another. It's most important for discussion leaders to remember that their role is to promote discussion without controlling or dominating it. Listed below are some additional responsibilities which discussion leaders must assume. 1. Introducing the discussion session . Explain to participants the purpose of the session, recording on newsprint the major goals to be accomplished. Go around the room asking each participant to identify themselves and their particular interest in the session. Try to remember names . Also explain what your function is as discussion leader and what process rules you'd like the group to observe through- out the discussion. Dispense with any unnecessary formalities . 2. Serve as a task-oriented time keeper . Keep the group moving so it doesn't get sidetracked or bogged down. Cut off any long winded or irrelevant comments. Try to be polite, but if you have a particularly obnoxious individual you may have to be firm — past politeness. 3. Ensure that learning is focused . Restate and call attention to major ideas of the discussion. 4 . Create a warm supportive climate for open discussion . It's important that all group members feel secure about expressing their views without fear of being ignored, ridiculed, criticized, or otherwise embarrassed. • -5 6- You can accomplish this by: 1) helping members to become better acquainted; 2) listening attentively to what each group member is saying without evaluating or judging their comments; 3) ruling out preaching or moralizing by you or group participants; 4) encouraging everyone to contribute but not forcing anyone to contribute until they are ready. Try not to call on the same people all the time; 5) being enthusiastic about the topic of discussion; 6) encouraging controversy within the group so long as it relates to issues and not personalities. Among other things, controversy offers a group the opportunity to make creative and high-quality decisions, to build the group's commitment to implement the decision, and to stimulate interest and curiosity. 5. Provide a sense of closure . A few minutes before the group's discussion is scheduled to close or when the topic has been exhausted, you should summarize the significant points made in the discussion. This summary should be brief but should not be a last minute statement made as people begin to leave the room. At this time, you should thank group members for their participation and let them know where and when they meet next. Brainstorming In certain of the small group discussion sessions included in this model program, we call for the use of a discussion technique know as brainstorming. Essentially, brainstorming is a method for generating many different ideas over a short period of time, getting full participation from all group members. It represents a period of time when all evaluation is suspended and ideas are allowed to develop freely on a particular issue. The steps involved in conducting a brainstorming session are simple: 1. Provide all group members with a list of the rules. These include: • Ideas are suggested to the group without evaluation or critical analysis . • Any idea is acceptable - the crazier the better. Practical considerations are not the most important ones. 4 + -57- *t • Quantity of ideas counts - not quality. A great number of ideas increases the likelihood of discovering good ones. • Build on ideas of other group members where possible . • Focus on a single problem or issue. • All group members must contribute ideas; every- one is an expert; all ideas are equally well received. • State your idea quickly and concisely. 2. Get the group to agree on one specific question or problem as the brainstorming topic. Make sure all terms are clear. 3. Write the question or problem on the newsprint. 4. Go to it. The group leader should record every idea suggested. Writing as quickly as possible, the leader should keep track of who's participating and encourage silent ones to contribute their ^i ideas. The time required for brainstorming a question will vary with the complexity of the topic. Simple questions will require no more than three to five minutes. More difficult ones could take more than 15 minutes. Once all ideas have been recorded, then the group leader can begin a discussion of the ideas presented, asking participants to consider the entire range of possibilities in developing a viable solution. • -59- LESSON PLANS %> ■ 14 -61- LESSON PLANS A. COASTAL TRAINING INSTITUTE LESSON PLAN NO. 1 COURSE TITLE LESSON TITLE Flood Hazard Management and Natural Resource Protection: The Coastal Setting. Introduction TIME: 0.5 Hour OBJECTIVES 1. Welcome participants, officials and guests. 2. Review goals of the Training Institute. SCOPE: Official opening of the workshop by welcoming participants, officials and guests; a general description of the workshop purpose, objectives, scope and subject areas; welcoming remarks of dignataries; introduction of group coordinators and/or staff instructors, assignment of participants to groups; orientation to sequence of workshop sessions, time schedules, and facilities (notation of agenda changes, if necessary) administrative announcements . FORMAT: Plenary session. Speech by Institute Director. REFERENCES: 1. 2. Instructor: a. Trainers' Manual, Lesson Plan No. 1 b. Coastal Student Manual Participant a. Coastal Student Manual REQUIREMENTS: Large room set up for plenary session, podium up front for speaker. REMARKS • 1. This is intended as a brief session providing the Director with an opportunity to formally open the training institute, welcome participants and introduce officials and invited guests. -62- The Introduction is also the best time to cover any administrative details such as room assignments, reimbursement procedures, locations of various sessions, etc. Until questions regarding these issues are resolved, participants will not be prepared to concen- trate on substantative matters. By the close of the Institute, participants are expected to have developed plans for the specific activities they will undertake when they return home to begin a community dialogue on a flood hazard mitigation and natural resource protection program. During the last session of the program, the small groups will report on their planned follow- up activities. During the welcoming remarks it is extremely important that the Director of the Institute lay out for participants: — the goals of the Institute; — what they are expected to have accomplished before leaving the Institute; — the nature of the small group reports to be presented on day three; and — the manner in which the Institute has been constructed to help participants achieve the stated goals. The Institute Director will want to examine Lesson Plans 2, 13, and 17 to be certain that he/she can communicate to participants what's expected of them and how they will get there. It may be very helpful to introduce the Steering Committee members during this introductory session. Invite participants to feed suggestions regarding improvements in the program to these individuals or directly to you, the Institute Director Be certain to note, while inviting such comment, that it may not be appropriate to accommodate all suggested changes at this late date, but that some adjustments and modifications are possible. -63- LESSON PLAN NO. 2 COURSE TITLE: Flood Hazard Management and Natural Resource Protection: The Coastal Setting LESSON TITLE: Introduction of Participants TIME: .75 Hour OBJECTIVES: 1. To introduce community participants and their communities to each other. 2. To establish the function of the "working group" at the conference. SCOPE: Introduction of participants to others sharing similar geographical area (state, substate, watershed). Brief discussion of participant community flooding problems and review of purpose of small group discussions. FORMAT: 1. Small group discussion within Plenary room. The director should divide participants into pre-designated small groups (groups will be divided according to some common denominator such as a state, substate or watershed area.) 2. Small group leaders selected by the director in advance will review for participants the purpose of the small group "working" session recording these objectives on the newsprint. 3. Next the group leaders will ask participants to introduce themselves highlighting their community flood hazard management concerns and what they hope to gain from the Training Institute. Group leader will record these concerns on newsprint for future reference. 4. This session is intended to be brief and informal. Participants should have a chance to get to know each other and to "tell their stories ." % -64- REFERENCES: 1. Instructors: a. Trainers' Manual, Lesson Plan No. 2 b. Coastal Student Manual 2. Participants: a. Coastal Student Manual REQUIREMENTS: 2. Sufficient space must be provided in plenary room so that participants can divide into small groups for discussion. Chairs should be unattached to the floor so that participants can simply pick them up and move them to the corner of the room where his/her particular group will be meeting. Easels with newsprint and magic markers should be provided for each small discussion group. REMARKS: 1. These small groups will be the working focus of the Institute. The group should be designed to have no more than 20 people. 2. The small group should be designed around a common geo-political area. If the conference is a multi-state regional conference, the working groups might be state oriented. In a state wide conference the working groups might be organized around watersheds. 3. The assignment of participants to smaller groups should be accomplished before the Institute. Participants will receive their group assignment at registration. 4. The leaders of these small groups will be selected from among participants before the conference. They will often be steering committee members, and will usually come from the non-governmental segment of the audience. The key criterion for selection of a working group leader is that the individual be a good discussion leader and facilitator. • -6 5- COURSE TITLE LESSON TITLE: PLAN NO. 3 Flood Hazard Managment and Natural Resource Protection: The Coastal Setting . Flooding and Flood Hazard Management in Coastal Areas: An Overview. TIME 1.5 Hours OBJECTIVES 1. Develop participant understanding of inherent complexities of coastal flood hazard management. 2. Give an historical perspective to coastal flood hazard management. 3. Address changing directions in coastal flood hazard management in response to the perceived weaknesses of the traditional approach. SCOPE: % The nature economic s protecting from flood and accura sensitive historical management vs. new di changing . of coastal flood hazards; the special ocial, and environmental problems of coastal populations and properties damage; the difficulties of timely te hurricane prediction; ecologically areas in the coastal floodplain; an perspective on coastal flood hazard , the traditional problem solving approach rections; why government policies are FORMAT : m 1. Plenary session. Film, followed by roundtable discussion reacting to issues raised by film. 2. Resource people: Moderator, plus three discussants from different perspectives, e.g. , a) local government; b) environmentalist; c) disaster relief specialist; d) hurricane weather specialist. 3. Skilled moderator will lead the discussion by posing a series of questions to panel members . -66- REFERENCES: 1. Instructor: a. Trainers' Manual, Lesson Plan No. 3 b. Coastal Student Manual. c. Flood Hazard Management and Natural Resource Protection; Community Action Guide" , FEMA, Chapter I. Participant: a. Coastal Institute Student Manual. b. Flood Hazard Management and Natural Resource Protection: Community Action Guide", FEMA, Chapter I. • REQUIREMENTS: 1. Large room should be set up for plenary session. 3. 4. The session will start with a dramatic film depicting coastal storms and the damage they can do. The film suggested in this model program is one on coastal hurricanes entitled "A Lady Called Camille". It was produced in the 1960 's by the Army Corps of Engineers and is available from your Regional FEMA Office. The film should be reserved well in advance of the Institute. The Institute Director should screen the selected film in advance to ensure its appropriateness. Movie projector, screen (slide projector) should be reserved from conference center in advance. s 5. Roundtable discussion will require that a table with a sufficient number of chairs and microphones be set up in front of the room. The table should allow discussants to look at each other. REMARKS: 1. The session is des to the major probl flood hazard manag and local governme overview and not a Panel members shou will not be expect remarks but rather questions from the The questions shou at least two weeks igned to expose participants ems and issues of coastal ement as they bear on state nts. It is intended as an comprehensive treatment. Id be informed that they ed to deliver any formal to answer specific ir particular perspective. Id be sent to panel members prior to the Institute. # % -67- 2. Prior to this session the director should bring panel members together to review once more the objectives of the session, to pre- view the film, and to develop a strategy for eliciting responses from panel members. 3. The director should provide panel members with a copy of the Resource Manual ahead of time and ask them to read Chapters I and II in preparation for their session. 4. The director should carefully brief the moderator on his/her role, stressing the importance of keeping responses brief and to the point, ensuring that all members of the panel have a fair opportunity to express their views, that the audience has ample opportunity to ask questions and that the session begins and ends on time. 5. The film selected for the model coastal program is most suitable for South, Mid- Atlantic, and Gulf Coast communities. Institutes involving Pacific Coast and North Atlantic communities may wish to search for another film that might be a more appro- priate introduction to the coastal flooding problems facing your audience. If you feel that the hurricane film described above is not likely to be appropriate, you should begin analyzing alternatives early in the Institute planning process. Do not plan to use a film that you have not personally screened to make certain it meets the objec- tives of this section of the Institute. QUESTIONS TO BE ADDRESSED BY PANEL: 1. What are the special problems of protecting the coastal floodplain? (Dynamic nature of coastal floodplain, fragility of coastal ecosystem. ) 2. What is the relationship of watershed and drainage management to coastal flooding problems? 3. What kinds of difficulties are incurred in predicting the landfall and wind force of hurricanes? Description of special ecological characteristics and hazard mitigation functions of natural coastal systems: beaches, oceans, estuaries, bays, and tidal rivers. Presentation of land use suitability analysis concepts. Hands on experiences utilizing natural resource maps as decision-making tools. FORMAT : 1. Small group discussion sessions of 15-20 people each. 2. The session, if possible, should be directed by a discussion leader who is someone other than the resource person presenting the information. 3. An appropriate resource person will give a 15-minute "mini lecture" using whatever audio-visuals they choose. Their presentation should address (a) the nature of flooding problems in communities located in one of these three areas, and (b) the role played by ecological resources of these communities in moderating the hazard. w -74- 4. Following the "mini lecture", the discussion leader will direct questions to the audience regarding their own community situations and explore with them special ecological resources they might consider protecting in their communities . 5. After approximately 50 minutes the workshop leader should call for a 10-minute break during which he/she will spread out the map- ping materials on the tables. Participants should be encouraged to stay in the room so as not to lose any time. 6. Next, the resource person will give a brief presentation (5-10 minutes) highlighting the use of land suitability as a planning tool. In his/her presentation the speaker will briefly describe the land suitability analysis process involving (1) the identification of environ- mental considerations or elements, (2) inter- pretation of this data on a resource by resource basis through the application of management principals to determine resource limitations, (3) the mapping of each resource variable on a common scale, and (4) the overlaying of variables to form an environmental composite or suitability map. 7. Finally, participants will have the opportunity for some "hands on" experience working with mapping materials especially prepared for this session. Materials will include (a) a U.S.G.S. quad sheet for a typical community type in that region (b) several mylar overlays depicting flood hazards, soils, wetlands, zoning and current land use, (c) a clear acetate sheet which participants can mark on with grease pencils, (d) handout describing materials and symbols displayed on maps. 8. The manner in which these materials are used in the exercise will depend on the sophistica- tion of the group members. Therefore, at the beginning of this session the speaker should find out from workshop participants what experience they've had with maps. If the group is relatively unfamiliar with land use suitability analysis, the resource person should start off by directing par- ticipants to take the U.S.G.S. quad sheet -75- )) and then overlay the flood hazard mylar to identify the 100 year flood boundaries. Next they might overlay the soils mylar and identify those areas suitable for development with and without septic tanks and then compare this information to the current zoning overlay noting any inconsistencies. Finally, they could repeat this process with the other mylar overlays, again noting inconsistencies with current land use and/or zoning. If the group is more sophisticated, then the discussion might focus on management policies which the community might adopt (based on existing data) to correct perceived problems or what additional data needs exist and how they might be resolved. REFERENCES: 2. Instructor: a. Flood Hazard Management and Natural Resource Protection: Community Action Guide , FEMA, Chapter II b. Coastal Student Manual c. Trainers' Manual, Appendix B Participant: a. Coastal Student Manual b. Flood Hazard Management and Natural Resource Protection: Community Action Guide, FEMA, Chapter II REQUIREMENTS: V 1. Workshops will be offered on various types of coastal ecosystems including beach and ocean, estuary and bay and tidal river. The exact categories of workshops offered will depend on the geographic characteristics of the communities involved in the Institute. For example, if none of the communities involved has an estuary or bay then that category of workshop will not be appropriate for the Institute. Prior to registration participants will sign up for one of the workshop topics which most closely matches their community's geographic/ecologic conditions. The optimal size for these workshops is 15-20 participants. Based on the size of the audience and the number of participants signing up for each workshop topic, there might be anywhere from 3-8 concurrent workshops addressing these topics . -76- 2. The Institute director should identify as many qualified resource people as necessary (3-8) to present during these sessions. These individuals should be scientists, natural resource planners or other individuals with a good under- standing of these types of ecological systems. The resource people might also serve as discussion leader for these groups or the Institute Director may want to appoint someone else as official discussion leader. 3. The Institute Director should, at regis- tration, assign individuals to workshops according to their stated preference. 4. There should be sufficient breakout rooms to accommodate the number of workshops planned. Each breakout room should con- tain 2 tables and sufficient chairs to accommodate 15-20 people. Each should be equipped with an easel, newsprint and magic markers and 2-3 copies of the mapping materials (U.S.G.S. base maps, natural resource overlays, clear acetate, and grease pencils) to be used in this session. Workshop rooms should also contain any audio visual equipment (slide projectors, overhead projectors, screens, etc.) requested by the workshop leaders. REMARKS: 1. Once again the Institute director will need to evaluate the mapping tools pro- vided with his trainer's manual to deter- mine whether or not the maps are appro- priate teaching tools for this audience. Keep in mind that the purpose of the mapping exercise is to familiarize the participants with the type and use of maps. The maps used for the exercise need not match exactly with the type of flood hazard problems reflected by com- munities participating in the Institute. On the other hand, if the types of natural resources are dramatically different than those reflected in the maps provided, the exercise map be more useful if revised. -77- !. The experience of participants in using maps to discover the manner in which community development patterns and flood hazard mitigation strategies fit together is an important part of this exercise. When the mapping exercise is utilized the group should organize into two smaller groups, each standing around a table with the mapping materials on it (see blue lines of mapping materials, appendix B). The interaction of the participants as they work together to answer questions for the mapping exercise (see briefing memorandum, Lesson Plan No. 5, Appendix B, ) is an important part of the learning experience. 3. If the Institute Director decides that he needs to develop a new set of mapping materials around a geographic area with resources, opportunities, and flood problems more common to participating communities, he will wish to: o Select an area which has had a variety of natural resource maps completed and for which a Flood Insurance Rate Map has been completed. The area should be partly, but not fully, developed so that the exercise can be used to discuss future opportunities as well as current problems. o Select and obtain a base map (usually a U.S. Geological Survey quad sheet) of an appropriately large scale -- not less than 1:24,000 — containing both natural features and development. o Select natural resource maps and land use maps useful for analysis of the interactions between development flood hazards and natural resources. The maps used in the exercise described in this manual include: — Soils map; — Wetlands map; -78- -- Zoning map; — Development map; and -- Floodway/f lood boundary map developed from a Flood Insurance Rate Map. o The natural resource and land use maps selected to overlay the base map should be redrawn onto mylar overlays and, of course, put on the same scale as the base map. o University geography or environmental studies departments may be the best source of assistance in identifying possible communities to serve as the model for this exercise. They may also be able to supply a graduate student who can inexpensively redraw and rescale the map overlays. 4. Blue line copies of the natural resource overlays prepared for this coastal institute are included in Appendix B. Reproduction copies of these materials can be obtained from the FEMA Washington Office, Division of Training and Education. 5. The workshop handout materials included in Appendix B are designed to be part of the Student Manual. QUESTIONS TO BE CONSIDERED: 1. What are the key coastal ecological resource types? 2. Where do they commonly occur? (In what associations?) 3. How sensitive are these resources to the activities of man? 4. What role do each of these resources play in flood hazard mitigation? 5. How can these resources be protected? What management policies should be applied? 6. What is a suitable community base map? (scale and availability) # -79- 7. What environmental factors or values are of particular importance to the community? (i.e., septic tank siting, hazard mitigation, etc.) What is the purpose or goal for the mapping project? 8. What technique, medium or materials are most appropriate to use in representing this information? How much will it cost? V . -81- COURSE TITLE LESSON TITLE LESSON PLAN NO. 6 Flood Hazard Management and Natural Resource Protection: The Coastal Setting Flood Hazard Management: Three Stories TIME: .25 Hour OBJECTIVES 1. To create a mood of excitement regarding the opportunities to develop flood hazard management strategies to meet a variety of goals . 2. To introduce some of the ways in which the National Flood Insurance Program provides assistance to local communities. SCOPE: Brief review of rationale for community flood hazard management. Presentation of three community approaches to particular flooding problems. FORMAT : Plenary session. Slide show presentation. REFERENCES: 1. b. c. Instructor: a. Slide Presentation, "Community Flood Hazard Management: Three Stories." FEMA Trainers' Manual, Lesson Plan No. 6, Appendix C. Flood Hazard Management and Natural Resource Protection: Community Action Guide , FEMA, Chapter III. Participant: a. Slide Presentation "Community Flood Hazard Management: Three Stories." FEMA b. Flood Hazard Management and Natural Resource Protection: Community Action Guide , FEMA, Chapter III. c. Coastal Student Manual REQUIREMENTS: 1. Large room should be set up for plenary sessions . I) -82- The slide show must be ordered from the FEMA Regional Office. It is available in two versions--a two-tray dissolve show with audio cassette and a single-tray version also with an audio cassette. The two tray dissolve show is more sophisticated and polished than the single tray version, but is also more complicated to operate. It requires the use of two automatic focus slide projectors (Kodak AF-1 or AF-2), a dissolve unit (Clearlite diamond or micro diamond) and an industrial slide tape player (Wollensak) . It's essential to have the proper equipment. The dissolve unit and tape player may have to be rented from an audio-visual equipment dealer and not all dealers carry the necessary equip- ment. Be sure the assemble the necessary equipment well in advance of the Institute and run through the slide show to ensure that all is in working order. The equip- ment dealer should be able to give instruc- tions on how to set up the equipment. The single tray version, while less sophisticated than the dissolve version, is also simpler to present. It requires only a standard slide projector and industrial slide tape player (Wollensak or others designed to handle lOOOhz inaudible pulse signals). Again, be sure to test the equipment prior to the Institute to be sure it's working properly. REMARKS: 1. The presentation is an inspirational piece designed to explore creative approaches to local flood hazard management. It will be followed immediately by small discussion sessions in which participants will focus on some of the major points made in the slide presenta- tion. -83- COURSE TITLE: LESSON TITLE: LESSON PLAN NO. 7 Flood Hazard Management and Natural Resource Protection: The Coastal Setting. Designing a Flood Hazard Management Program: Identifying Goals, Opportunities and Strategies TIME: 1 Hour OBJECTIVES 1. To reinforce the varying opportunities for flood hazard management presented by the slideshow. 2. To relate these opportunities to the pre- and post-flood stages of flood hazard management . 3. To highlight the importance of local initiative in taking advantage of various state and federal assistance. # SCOPE: 4. To relate various opportunities and strategies described in slide show to goals described in preceding days session and still taped to wall of plenary session room. Review of flood hazard management goals used by communities depicted in the slide show. Discussion of various opportunities and strategies available to the communities in the slide show during both the pre- and post-stages of flood hazard management. Emphasis on importance of local initiative. Relating goals and actions of communities in the slide show to goals listed by participants early in the Institute. FORMAT Concurrent plenary se should ask small disc The easies the large in each se particular group will Allow 5-10 establish small group discussions within ssion. The Institute Director participants to break down into ussion groups of 10-20 individuals, t way to do this is simply to divide room into sections and ask individuals ction to take their chairs to a spot in the large room. Each be assigned a discussion leader. minutes for the small groups to themselves . *> Discussion leader should begin the session by asking participants to introduce themselves. -84- 3. Next, the discussion leader will ask partici- pants to discuss a series of questions using prepared work sheets to record their responses. The questions include: (see Exercise B) a) What were the goals of the flood hazard management programs adopted by the three communities in the slide presentation? How do these goals relate to those identified in the earlier session? b) What opportunities did each of the communities explore in developing their flood hazard management programs and to what stage (pre-flood or post-flood) of flood hazard management were the programs directed? c) What specific strategies did the three communities adopt to implement their flood hazard management plan? To what extent were federal and state agencies involved? What additional assistance might have been employed in each situation? REFERENCES: 1. Instructor: a. Flood Hazard Management and Natural b. Resource Protection: Community Action Guide , FEMA, Chapter III Trainers' Manual, Lesson Plan No. 6 and 7 2. Participant: a. Flood Hazard Management and Natural Resource Protection: Community Action Guide , FEMA, Chapter III. b. Coastal Student Manual REQUIREMENTS: Large room should be set up for plenary session. Chairs should be capable of being easily rearranged into smaller discussion groups. REMARKS: 1. Discussion leaders should be individuals familiar with the subject of community flood hazard management. They might be planners, professors, or local officials with experience in developing a community plan, etc. 2. Discussion leaders should view the slide show in advance of this session and should also be provided with a copy of the script and worksheets (with answers). - Q» -85- QUESTIONS TO BE CONSIDERED: 1. What are the variety of goals that the communities in the. slide show tried to achieve? 2. What were the obstacles that those communities had to overcome? How did they overcome these obstacles? 3. What factors should be considered in developing a community flood hazard management program? 4. What approaches best address problems of existing development within the flood hazard area? 5. What approaches are best to control new development? 6. What kinds of federal/state/local assistance are available to assist communities? 7. What are the differing opportunities available to communities regarding their developed land versus their undeveloped land? What are the differing opportunities available before or between floods, or after a major flood? # *> -87- EXERCISE B 1. What were the goals of the flood hazard management programs adopted by the three communities in the slide show? Goals Montgomery County Baltimore County Sanibel Island Reduce property Reduce property Protect lives by loss ; Minimize fiscal loss; Minimize fiscal preserving con- servation impacts ; Protect safety of population. impacts ; Protect safety of population; Preserve open capability; Reduce property loss ; Preserve natural space and recreation . areas ; Reduce erosion sedimentation . How do these goals relate to the general list of goals developed in the previous session? 2. What opportunities did each of the communities explore in developing their flood hazard management programs and to what stage (pre-flood or post-flood) of flood hazard Management. Were the programs directed? Montgomery County Baltimore County Sanibel Island Oppor- tuni- Flood damaged homes ; Flood damaged homes ; Valuable natural ties Owners willing to Owners willing to resources ; relocate ; Federal agency assistance made relocate ; County in need of recreation open Active citizens' groups commit- ted to protect- available to relocate resi- dents . space ; County committed to solving its own problems in a comprehensive way; Active citizen involvement in planning process. ing qualities of the Island; Significant land still undeveloped . Flood Hazard Manage- Post-disaster Pre- and Post- Pre-disaster ment stage address- ed disaster ( comprehens ive plan) (comprehensive plan) DIRECTIONS: The boxed in areas contain answers to the questions to be posed to the group. This exercise is reproduced in the student manuals with the answers omitted. to auidP t-hfi£ r £ Sei:ite 2 to . the group in that format to guide their brainstorming effort. -88- EXERCISE B (continued) 3. What specific strategies did each community adopt to implement their flood hazard management plan? To what extent were federal and state agencies involved? What additional assistance might have been employed in each of the community situations? Montgomery County Baltimore County Sanibel Island Strate- Enforcement of Development of Comprehens ive gies existing ordinances by denying building permits for flood damage properties located in comprehens ive plan including cost/benefit analysis of alternative strategies for flood hazard plan; Strict regula- tions to control devel- opment and protect natural resources ; f loodway . management ; Strict regulation Warning and evacuation over new develop- ment in flood- plain ; Relocation of plans . damaged proper- ties using county funds. Federal NFIP Con- Little or no Primarily local and structive federal effort ; State In- volve- Total Loss declaration relocation involvement in relocation efforts . FIA assistance in providing basic flooding ment assistance . information. Addi- tional Assist- ance -89- COURSE TITLE- LESSON TITLE: LESSON PLAN NO. 8 Flood Hazard Management and Natural Resource Protection: The Coastal Setting. The Federal and State Framework for Community Flood Hazard Decision Making TIME: 1.25 Hour OBJECTIVES 1. To outline the structure and functions of various Federal and State programs that affect community flood hazard management: 2. To relate these various activities to the goals of community flood hazard management previously identified by participants. SCOPE: Various federal and state programs that affect coastal flood hazard management including: NFIP, Floodplains and Wetlands Executive Orders, Coastal Zone Management and State Natural Resource Management Programs. FORMAT: 1. Speech followed by roundtable discussion of key questions posed by moderator. 2. Audience questions and answers. 3. Roundtable participants should be selected from among the following interests: • FEMA regional office; • State coastal zone management program; • State FIA coordinator; • Local government; and • Citizen activist. REFERENCES: 1. Instructor: a . Flood Hazard Management and Natural Resource Protection: Community Action Guide , FEMA, Chapters IV, V, and VIII. b. Trainers' Manual, Lesson Plan No. 9. -90- Participant : a . b. Flood Hazard Management and Natural Resource Protection; Community Action Guide , FEMA, Chapters IV, V, and VIII. Coastal Student Manual REQUIREMENTS: 1. Large room should be set up for plenary session. 2. Speaker will require podium and possibly audio visual equipment if requested. 3. Panel discussion following speech will require table with sufficient chairs for panel members speaker and moderator. REMARKS : Speaker gives 1/2 hour presentation (using audio visuals if possible) outlining the various federal and state programs likely to impact coastal flood hazard management. Speaker will begin by highlighting major objectives and requirements of the Executive Order(s) identifying how these can impact local governments. Speaker will then briefly review function of the National Flood Insurance Program in relationship to other federal programs and the role of FEMA and the state FIA coordinator. Finally, the speaker will discuss the Coastal Zone Management Program as a coordinating mechanism for the range of federal coastal programs, how it's being implemented at the state level and how other state natural resource management programs might be utilized to enhance community flood hazard management. Following the speech, the speaker will par- ticipate as a panel member in a roundtable discussion of key questions posed by the moderator and members of the audience. Panel members will represent the range of federal and state interests involved in Coastal Flood Hazard Management. The moderator will pose a series of questions to various panel members designed to elaborate or reemphasize points made in the speech. Panel members will be given these questions in advance and should be prepared to give direct, concise answers. -91- The moderator's job will be to ensure that responses are brief, and to the point, that all panel members participate and that members of the audience have time to ask their own questions . QUESTIONS TO BE ADDRESSED: 1. What are the respective responsibilities of the Federal and State governments in flood hazard management. 2. How well are various programs coordinated at the Federal level? How might coordination be improved? 3. What new initiatives are being implemented to improve federal coordination? 4. What are some of the approaches that creative state governments have used to meet their challenge in mitigating flood hazards and protecting natural resources . 5. How do most state governments relate their role in flood hazard management to that of the local community. 6. How is the role of the State likely to be affected as the result of new federal initiatives? -93- COURSE TITLE LESSON TITLE LESSON PLAN NO. 9 Flood Hazard Management and Natural Resource Protection: The Coastal Setting. The National Flood Insurance Program: What it Does and Doesn't Do TIME: 1 Hour OBJECTIVES: 1. To bring participants to a common level of understanding concerning the specific minimum requirements of the NFIP. 2. To familiarize participants with the tools of the NFIP. 3. To examine the extent to which the NFIP will help to meet the range of community flood hazard management goals. SCOPE: Minimum requirements of the NFIP, basic tools (maps, FIS study, flood profiles) provided by NFIP, issues which NFIP addresses, issues not addressed by NFIP. FORMAT: 1. Plenary session. Speech followed by roundtable discussion of key questions posed by moderator. 2. Questions and answers. 3. Roundtable participants should be selected from the following interests: • FEMA Regional Office • State FIA Coordinator • Local Official • Civil Defense Agent • Environmentalists REFERENCES 1. Instructor: a . Flood Hazard Management and Natural Resource Protection: Community Action Guide , FEMA, Chapter IV. b. Trainers' Manual, Lesson Plan No. 9 c. NFIP Slide Presentation, FEMA. (optional) -94- Participant : a. Flood Hazard Management and Natural Resource Protection: Community Action Guide , FEMA, Chapter IV. b. Coastal Student Manual. REQUIREMENTS: 1. Large room set up for plenary session. 2. Visual displays of Flood Hazard Boundary Maps, Floodway, Flood Boundary Maps, FIRM Maps, Flood Profiles. The speaker should provide his/her own visual aides but may require slide projector and/or overhead projector. 3. Podium for speaker. Table and chairs set up front for Panel Members. REMARKS: 1. Speaker gives 15 minute presentation illustrated with slides, outlining the two phase process of the NFIP, the major requirements of the NFIP and the major tools (Flood Hazard Boundary Map, Floodway/Flood Boundary Map, FIRM map, Flood Profiles and FIS). 2. Following this presentation, a panel consisting of representatives of other federal, state and local interests will react to the presentation based on questions posed by a moderator. The purpose of these questions (which panel members will have in advance) will be to highlight both the strengths and shortcomings of the NFIP, identifying areas where communities might want to improve upon the minimum requirements of the NFIP. 3. Once the panel has reacted to the short list of prepared questions, the moderator will open up discussion to questions from the audience. QUESTIONS TO BE CONSIDERED: 1. What are the two phases of the NFIP? community enter the NFIP? How does a 2. What are the basic regulatory concepts and tools of community participation in the NFIP? -95- 3. What are the minimum requirements of participation in the Regular program of the NIFP? What function do they serve? (a) What is meant by the Base Flood? 100-Year Flood? (b) What is a Flood Hazard Boundary Map, Flood Insurance Study, FIRM Map, Floodway/Flood Boundary Map? (c) How are Flood Profiles interpreted? 4. What new initiatives are being considered for the NFIP Program (1362, constructive total loss, Flood Plains Executive Order)? How will these initiatives likely affect development of community flood hazard management programs? 5. What provisions does the NFIP Program incorporate to protect certain coastal ecological resources (sand dunes, mangrove swamps, barrier islands)? -97- '# COURSE TITLE LESSON TITLE: LESSON PLAN NO. 10 Flood Hazard Management and Natural Resource Protection: The Coastal Setting. Flood Hazard Management: Issues and Programs TIME: 1 Hour OBJECTIVE: To allow participants to explore in more detail the various issues and programs described in the earlier sessions. SCOPE: Detailed look at various issues and programs relating to the NFIP including: building standards, NFIP regulations, Section 1362 of National Flood Insurance Act of 1968, flood hazard mapping, Coastal Zone Management. FORMAT Concurrent workshops (4-5) focusing on a variety of flood hazard management issues. Participants select workshop topic of most relevance to them. Resource people who are experts on the particular topic will give a 10-20 minute presentation using audio-visuals of their own selection where appropriate. Workshop leaders (who may or may not be the same as the resource person) will begin the session by going around the room asking participants to identify themselves and why they selected this workshop. Then the resource person will give his presentation tailoring his remarks to meet the needs of the audience. During the remaining portion of these work- shops the group leader will conduct a dis- cussion of key issues or questions relating to the workshop topic. REFERENCES Ofi>> Instructor: a. Flood Hazard Management and Natural Resource Protection: Community Action Guide , FEMA, Chapters IV, V, and VII. b. Trainers' Manual, Lesson Plan No. 10. -98- 2. Participant: a. Flood Hazard Management and Natural Resource Protection; Community Action Guide , FEMA, Chapters IV, V, and VII. b. Coastal Student Manual REQUIREMENTS: 1. Separate break out rooms will be required for each of the workshops offered during this session. Rooms should be equipped with audio visual equipment and easels as requested by workshop leaders. REMARKS: 1. Participants elect to attend one of several workshops offered concurrently. 2. The workshop topics suggested here are offered as examples of the kinds of issues best addressed during this session. The Institute director with assistance from the Steering Committee should determine which of these topics (as well as possible others) are most appropriate for the particular geographic region and audience involved. QUESTIONS TO BE ADDRESSED DURING WORKSHOPS: A. Building Standards 1. What requirements of the NFIP relate to buildings? Do these requirements only deal with the impact of floods or do they also address other special needs of building in hurricane prone areas. 2. What specific provisions should be included in a local building codes to insure that elevated new structures are built to withstand hurricane force winds? storm driven waves? 3. What lessons can be learned from experiences in communities recently hit by hurricanes (Gulf Shores, and Dauphin Island, Alabama)? 4. What problems might building inspectors anticipate in enforcing standards? 5. How do building requirements of the NFIP relate to the actuarially based insurance rates used by FEMA in coastal high hazard areas? -99- B. NFIP Regulations 1. What are the minimum requirements of the NFIP (Regular Phase) in terms of elevations, construction, and land use? 2. What specific requirements does the NFIP pose for new construction in the high velocity zone? 3. On what basis have elevation requirements been established in the past? How will wave heights be factored into the formula for establishing actuarial rates for new construction? 4. To what extent are barrier islands, dunes, and other fragile coastal ecosystems protected under the NFIP regulations? C. Section 1362 (Post Disaster Acquisition/Relocation under NFIP) 1. What is Section 1362? What are its major provisions? 2. How is Section 1362 being implemented currently? How much money has been appropriated? 3. How is eligibility for 1362 funds determined? What procedures must communities follow to acquire 1362 funds? 4. What restrictions are placed on the use of 1362 funds? D. Flood Hazard Mapping 1. What role do maps play in the NFIP? 2. What is the status of FIA's community mapping process? 3. What is the data base of the community map? What are the sources of possible error in flood hazard boundary mapping? What kinds of changing conditions might affect the communities of flood hazard boundary? 4. What is the process of amending maps to reflect changing conditions? 5. How are existing maps going to be amended to reflect wave height data? How long will the process take? What should communities do in the interim before their maps are amended to regulate new development in high velocity zones? 6. What is the status of the new FIA map locator service? -10 0- E. Coastal Zone Management 1. What's being done at the Federal level to coordinate coastal zone management and flood hazard mitigation? 2. How might an approved state coastal zone management plan be useful to a community in achieving flood hazard mitigation goals? 3. What types of assistance are available to communities from the state CZM office? -101- -> COURSE TITLE LESSON TITLE LESSON PLAN NO. 11 Flood Hazard Management and Natural Resource Protection: The Coastal Setting OBJECTIVES SCOPE: Local Strategies for Flood Hazard Mitigation: Case Examples TIME: 1 Hour 1. To allow participants to examine in detail the way a particular community utilizes a strategy (or set of strategies) to accomplish flood hazard mitigation goals. 2. To focus attention on the stages of flood hazard management (pre and post) to which the strategy was applied. 3. To highlight the role of various federal, and state programs (NFIP, CZM, WQM) in accomplishing the strategy. 4. To relate the strategies to the goals of flood hazard mitigation identified previously Review of specific strategies that different communities have employed to manage coastal flood hazards, highlighting community goals, the design and implementation of the strategy, and the role of federal, state, local and public actors. The focus will be on key factors in making the strategy work. Specific strategies addressed might include: relocation, recreation/ acquisition, storm water management, zoning, critical areas protection, development standards. FORMAT 1. Concurrent Workshops (3-4) focusing on specific community case example. 2. Participants select case example which best reflects their community situation. 3. Workshop leader who is a resident of the case community gives brief presentation then leads group discussion. OH' REFERENCES: -10 2- 1. Instructor: a. Flood Hazard Management and Natural Resource Protection: Community Action Guide ; FEMA, Chapters II, III and VI. b. Trainers' Manual, Lesson Plan No. 11, FEMA. c. Trainers' Manual, Small Group Discussions 2. Participant: a. Flood Hazard Management and Natural Resource Protection: Community Action Guide , FEMA, Chapters II, III and VI. b. Coastal Student Manual REQUIREMENTS: Break out rooms will be required for the 3-4 separate workshops, each equipped with any audio-visual equipment requested by the workshop leader. Workshop 1 at least 2 a one page situation presentati a descript conditions problems , implemente eaders should be asked to submit, weeks in advance of the Institute, description of the community they will be describing in their on. This summary should include ion of the size and geographic of the community, major flooding strategies proposed and/or d to resolve the flooding problems. If possible the summary should be printed in the workbook but otherwise should be handed out at registration to allow par- ticipants time to read them and select the one they're most interested in hearing more about. REMARKS: 1. Participants elect to attend one of 3-4 concurrent workshops focusing on specific communities' approaches to flood hazard management. Workshops will be led by community leaders with experience in implementing a particular strategy or set of strategies at the community level. 2. Workshop leader will begin the session with a 15-20 minute presentation accompanied by slides and other appropriate visuals. > * -103- The presentation will first describe the community's flooding problems, political, social, and economic situation, existing natural resources and any existing flood hazard management program. Then the pre- sentation will describe the most recent efforts to adopt or strengthen the community's flood hazard management program, citing the actors involved and the strategies adopted. 3. Following the presentation, the workshop leader will answer questions from the audience. QUESTIONS TO BE CONSIDERED: 1. What are the major flooding problems in the community? 2. What are the estimated costs to the community of recurrent floods? 3. What opportunities did the community identify to begin to address their flooding problems? In the pre flood situation? In the post flood situation? 4. What specific flood hazard management strategies were proposed? Which ones were rejected and why? Which ones were adopted? 5. Who were the actors involved in the decision-making process? How were they involved? 6. What community, state and federal resources were required to implement the particular strategy? How were these resources obtained? 7. What lessons have been learned by community leaders in the process? What things might they approach differently if they were to start over again? -105- > COURSE TITLE: LESSON TITLE LESSON PLAN NO. 12 Flood Hazard Management and Natural Resource Protection: The Coastal Setting The Role of Public Participation in Community Flood Hazard Decision Making TIME: 1.5 Hours y OBJECTIVES 1. To establish the importance of involving various publics in developing a community flood hazard management program. — Building a constituency for a comprehensive program. — Ensuring equity. — Building a constituency for implementation. 2. To establish some performance standards for effective public participation. 3. To expose participants to the range of techniques that are available for public involvement. SCOPE: Importance of public involvement, various publics affected by flood hazard management programs, performance standards for effective public involvement, tools and techniques for public involvement. FORMAT 0^ 1. Plenary Session. Speech followed by round- table discussion with key questions posed by moderator. Audience Questions and Answers. 2. Speaker familiar with public involvement issues gives presentation addressing the importance of public involvement, who should be involved and why and how to achieve effective involvement. 3. Following the speech, the workshop director (or moderator) will ask participants to complete Exercise C found in their workbooks and then, for each question in the exercise, randomly select several participants from the audience to state their names, interest -106- group and their particular response. The workshop director will record these responses on newsprint. This process should require no more than 10 minutes. Next the workshop director will introduce several panel members, all of whom have particular experience with public partici- pation, and ask each one to elaborate on the points made in the speech as well as comment on the results of the exercise, drawing upon their own experience whenever posible. Following these brief (5 minute) responses from panel members, the workshop director (or moderator) will open discussion to questions from the audience. REFERENCES: 1. Instructor: a . Flood Hazard Management and Natural Resource Protection: Community Action Guide , FEMA, Chapter VI. b. Trainers' Manual, Lesson Plan No. 13, FEMA. c . Flood Hazard Management and Natural Resource Protection: Community Action Guide Summary . FEMA. 2. Participant: a . Flood Hazard Management and Natural Resource Protection: Community Action Guide , FEMA, Chapter VI. b. Coastal Student Manual c . Flood Hazard Management and Natural Resource Protection: Community Action Guide Summary. FEMA. REQUIREMENTS: 1. Large room should be set up for plenary session. 2. Easel with newsprint should be provided for speaker to record participant responses 3. Table and chairs should be provided for Panel Members. ) ) -107- REMARKS: 1. It's important that the initial responses of panel members be kept brief to allow time for questions from the audience. Therefore, panel members should be well briefed on their role prior to their session and the moderator should use an iron hand to keep responses brief. 2. It would be extremely useful if the speaker could provide copies of his speech to panel members in advance of the Institute. If not, the speaker should at least meet with panel members and the moderator prior to the session to discuss what points the speaker will cover and what follow-up points each panel member would like to make. QUESTIONS TO BE ADDRESSED DURING SESSIONS: 1. Who are the key actors both within and outside of the community who should be involved in the development of a community flood hazard management program? What range of perspectives are they likely to represent and why is it important to include them? 2. What are some of the key decision points in the development of a flood hazard management program where the public should be involved. What specific kinds of information/input can the various publics provide at each of these decision points? 3. What role can or should the public play during implementation of the flood hazard management program? 4. To what extent in the past has the public been involved in developing a community flood hazard management program? What methods were used? What has been the result of this level of involvement? 5. Does the NFIP have any specific requirements or guidance for public involvement? 6. What are some of the essential elements of an effective community public involvement effort? What are some of the techniques which may be most useful in achieving quality public participation? 7. What are some potential sources of assistance to communities in developing a meaningful public participation effort? ^ -109- EXERCISE C INTRODUCTION OF PARTICIPANTS Participants for the Flood Hazard Institute were chosen to represent a diversity of opinions and backgrounds. The purpose of this segment of the program is to give everyone a better understanding of the attitudes and perspectives shared by fellow attendees, resource people, and Institute staff. DIRECTIONS FOR EXERCISE: Indicate your opinion on each question by marking the horizontal line with an "x" above the appropriate number. Then indicate how strongly you care about this issue by circling a letter from A (very important issue) to E (unimportant issue) on the vertical line. You will have ten minutes to mark your responses, and then we will sample opinion in the group. 1) How much weight should be given to public opinion in the development of a community flood hazard management program? A ( The decisions involve complex technical issues and should be made by experts Equal weight should be given to public opinion and expert conclusions . The important decisions in developing a flood hazard management program are not that technical, and the public, who has to live with the results, should have the primary say. very impor- tant issue ) B C ( D ( moder- ately impor- tant) unim- portant issue ) -110- EXERCISE C (continued) 2) Granted that most people would like to see both environmental improvement and low taxes and economic development, how would you vote in a clear-cut choice between the economy and the environment in your town? The economic stability of a community is the most important consi- deration. After all if people don't have jobs and money to spend they won't care about their environment. Equal weight given to both Maintaining the community' s environmental quality is most important. Poor environmental quality produces all sorts of hidden community costs which too often aren't considered . A (very impor- tant issue) B (moder- ately impor- tant) (unim- portant issue) 3) Should residents who knowingly choose to live in flood hazard areas be assessed some sort of tax to cover the community costs (emergency police, fire, rescue services, public utility repairs, warning and evacuation procedures) incurred as the result of a flood disaster? No, these are costs rightly borne by the community as a whole. Besides, it would be impossible to establish an equitable tax. Possibly in situations where the flood hazard is well defined and the resident who has a choice between a non- hazard location chooses the hazardous location because of the personal benefits (aesthetics, convenience) derived from the hazardous location. Yes, these residents reap the benefits of such a location, so they should also bear the costs. > COURSE TITLE LESSON TITLE -111- LESSON PLAN NO. 13 Flood Hazard Management and Natural Resource Protection: The Coastal Setting Recommendations for Group Action TIME: 1 Hour OBJECTIVE: To continue discussion of the issues the working group identified the first evening and give that group opportunities to develop ideas for follow-up activities after the conference. SCOPE: Continuation of earlier group discussion of community problems, state problems, action required to resolve problems (i.e., better data and data analysis, public education and involvement, intergovernmental cooperation, social and economic considerations). FORMAT (1) Small group discussions (2) Continuation of previous discussion described in Lesson Plan No. 2 with groups divided according to pre-determined geographic area. (3) The group leader or facilitator of this session should be the same leader used during Lesson Plan No. 2. (4) Using brainstorming/discussion techniques (page 56) leader then asks each member of group to address the following questions: • What is the nature of the flooding problem in my community? • What kinds of strategies might be employed to address these problems? • How will the requirements of the NFIP and the state affect the manner in which flooding problems are address? • Who are the community interests likely to be affected by flooding problems and their solutions? -112- o What kind of public involvement mechanisms have traditionally been successful in my community in involving these interests? (5) Responses to each set of questions will be recorded in newsprint. REFERENCES 1. Instructor: a. Flood Hazard Management and Natural Resource Protection: Community Action Guide , FEMA, Chapters III and VI. b. Trainers' Manual, Lesson Plan No. 2 & FEMA. 12, 2. Participant: a. Flood Hazard Management and Natural Resource Protection: Community Action Guide , FEMA, Chapters III and VI. b. Coastal Student Manual REQUIREMENTS: 1. Break out rooms will be required for each of the small group sessions. Rooms should be equipped with easels, newsprint and magic markers. REMARKS : The ultima sessions i management rather to variety of ment of a for public understand te purpose of these small group s not to develop a flood hazard program for the community, but develop a plan for involving a community actors in the develop- flood hazard program. The plan involvement must be keyed to an ing of the following factors: o What has already been accomplished in management of flood hazards in the community? o What opportunities for flood hazard management remain to be addressed? o How are the variety of publics in the community likely to respond to various flood hazard management strategies. -113- On the other hand, if the Institute involves a multi-state region and the small groups are organized by state, the working group facilitator will initially face certain problems in getting the group as a whole to develop action plans. For example, each state group will be composed of community leaders from a number of potentially very different communities. These individuals initially may find it difficult or distracting to attempt to discuss a wide range of community problems and issues. 2. One important benefit of these sessions, par- ticularly in a multi-state region, is the oppor- tunity provided for "cross-fertilization." Par- ticipants may gain new insights from hearing each other's analysis of the problems and opportunities they face. Participants from outside a particular community may be able to ask creative questions that will allow others to develop new ideas. As a means to deal with the diversity within the group, the group leader or facilitator may wish to address each of the questions listed under format to the entire group, then ask that the group subdivide itself into community or watershed groupings, and develop answers to the various questions allowing about 10 minutes for discussion. The subgroup answers would then be reported to the whole group, recorded on separate sheets of newsprint, compared and discussed. 3. It is unlikely that these small groups will fully accomplish all they have set out to accomplish during this session. If they manage to get through a discussion of all the questions listed under format, they will be in a position to finalize action plans during Lesson Plan No. 16. 4. Although group leaders will want to push members of their group to develop specific action plans before they leave the Institute, not all groups will be able to proceed at the same pace. If any group (or certain community in a group) is unable to develop the initial steps of a community involvement program while at the Institute, try to have them set a date when they will meet again to finalize plans. I -115- LESSON PLAN NO. 14 COURSE TITLE: Flood Hazard Management and Natural Resource Protection: The Coastal Setting LESSON TITLE: Issues on Public Participation TIME: 1 Hour OBJECTIVE: To allow participants to focus on the issue and tools that influence the development of a successful public involvement program. SCOPE: Specific issues and tools relating to effective public participation: goal setting, coalition building, bargaining and negotiation, communication skills, motivating the public. FORMAT: 1. Concurrent workshops (4-5) on a range of public participation issues and/or tools. Participants select workshop topic of greatest interest to them. 2. Workshop leaders familiar with the particular tool or issue being addressed conduct group discussion. 3. Alternative workshop topics suggested here are: • Goal Setting; • Coalition Building; • Bargaining and Negotiation; • Communication Skills; • Motivating the Public. REFERENCES 1. Instructor: a . Flood Hazard Management and Natural Resource Protection: Community Action Guide , FEMA, Chapter VI. b. Trainers' Manual, Lesson Plan No. 13 & 14, FEMA. -116- 2. Participant: a. Flood Hazard Management and Natural Resource Protection: Community Action Guide , FEMA, Chapter VI. b. Coastal Student Manual REQUIREMENTS: Sufficient break out rooms will be required for each of the workshops offered. There should be some flexi- bility permitted in the number, size and set up of these break out rooms to accommodate last minute changes. The rooms should be set up for no more than 20 people. REMARKS 3. 4. The list of is by no me offered as that might The Institu the Steerin actual list during a pa assessment audience be workshop topics suggested here ans all inclusive but rather is a sample of the kinds of issues be explored further in workshops. te Director in conjunction with g Committee should determine the of workshop topics to be addressed rticular Institute based on their of the needs of the particular ing targeted. Participants should be asked to sign up for these workshops at Registration. The easiest way to do this is to have a separate sign-up sheet for each workshop indicating that 20 participants is the maximum for any workshop. The results will provide the Institute director with a good sense of which topics are of most interest to participants. Its conceivable that some topics may not generate sufficient interest to warrant a separate workshop but could easily be be incorporated into the discussion of another topic. Workshop leaders who are individuals ex- perienced in public participation will give a brief (5 minute) presentation on the par- ticular issue or tool being discussed in the workshop, citing his or her own experiences. Next the group leader will go around the room asking individuals to indicate what experience they've had with the particular issue or tool noting both positive and negative results. -117- i 5. Finally, the group leader will open up discussion, focusing on factors which effect either successful resolution of the issue or effective utilization of the tool. Relevant factors will be recorded on newsprint and discussed in detail. QUESTIONS TO BE CONSIDERED: A. Goal Setting 1. Who in the community should be involved in the setting of goals for a flood hazard management program? How can or should broader community goals be reflected? 2. How do you identify community goals? What techniques (questionaires , local workshops, referendum) are most useful? How can you ensure that the goals you identify in fact reflect those of the entire community? 3. What do you do in situations when some goals seem to be in direct conflict? What' are some effective methods for achieving compromise? B. Coalition Building 1. How can building a coalition help the passage and implementation of a community flood hazard management program? 2. What interests should comprise your coalition. How may these interests be identified? 3. How does one identify the common interests which may bind a coalition? 4. What kinds of organizational decision-making will help keep a coalition together? 5. What resouces, skills and outreach ability do the various interest groups which might comprise a coalition have which might be utilized in developing a comprehensive flood hazard management program? -118- C. Bargaining and Negotiation 1. When is formal bargaining or negotiation useful? 2. How do you establish those points which are not negotiable? Those that are negotiable? 3. How do you identify tradeoffs that various groups may be willing to make to come to agreement? 4. How do you approach an opposing group on the subject of bargaining? 5. When is it useful to have a third party assist in the bargaining process? 6. What type of technical expertise might be required during a negotiation process? 7. If a third party negotiator is used, what skills should he/she have? D. Communication Skills 1. What are some of the most effective means to reach the general public? (news media, public television) What basic message should be relayed to different publics? 2. How should materials be presented to the general lay audience? How can you translate complicated technical analysis into simple English? 3. How can you be sure your message is being received and clearly understood? What kinds of feedback mechanisms are appropriate? E. Motivating the Public 1. How do you overcome initial public apathy or unawareness? What techniques could you use to "sell" your program to the public? 2. What are some of the causes of public apathy? How do you overcome them? 3. What are some examples of techniques which have worked in other communities? 4. How do you keep the public involved and interested? -119- (^L COURSE TITLE: LESSON TITLE LESSON PLAN NO. 15 Flood Hazard Management and Natural Resource Protection: The Coastal Setting Designing a Flood Hazard Management Program in Coastal Communities TIME: 2.0 Hours OBJECTIVES: o 1. To examine in a realistic setting the factors that affect the opportunities for flood hazard management in coastal communities. 2. To examine the basic regulatory framework likely to result from community participation in the NFIP, and other Federal and State programs . 3. To examine the range of strategies and tools that might be linked together to develop a comprehensive flood hazard management program according to the appropriate flood hazard management stage. 4. To identify the economic and social interests that may be affected by alternative strategies. 5. To establish the tradeoffs that must be made by a community in designing a flood hazard management program. SCOPE Case study information on physical characteristics, population, flood problems, economic/social con- siderations, political context; present community maps and flood hazard areas; pre-flood and post- flood opportunities, goals development, legal institutional framework, specific strategies. FORMAT: ) 1. Concurrent workshops. Participants divided into groups of 15-20 people. 2. Selected and trained facilitator leads group in discussion of case study materials. 3. In small groups, the facilitator asks partici- pants to take 5 to 10 minutes to read the case study. Then facilitator will outline the objectives of the session and ask participants to introduce themselves. -120- 4. Facilitator will pose the following questions to the group in the order shown: a. Who are the interests with a stake in flood hazard management? b. What is the nature of their stake? c. What needs of various interests will have to be met in order to obtain their support in meeting flood hazard management goals? Local government Low income Business Banker Real estate developer Salesman Industry/Land Water dependent/Water based industry Civic Leader Environmentalist d. What kinds of tradeoffs (economic/social/ environmental/political) might various interests be willing to make? e. What kinds of strategies can be adopted to reflect these tradeoffs and to respond to the flooding problems of this community? In the pre-flood period? In the post-flood period? f. What are the likely impacts of various strategies on various interest groups? On community as a whole? 5. The preferred techniques to be used in addressing these questions is called small group brainstorming (see page 56 ). Using this technique, the facilitator goes around the room asking participants for their answers to the various questions and recording these answers on newsprint. Once all answers have been recorded, then the facilitator leads the group in a discussion of several of the questions beginning with question d and incorporating answers to questions a, b and c where appropriate. 6. After each question has been discussed, participants should be asked to spend a few minutes considering how the answer might differ in their community. -121- o 7. The attached Exercises D and E have been developed to help particpants address the questions regarding opportunities and strategies in the pre and post flood periods. The facilitator might ask participants to take 5-10 minutes to individually fill out charts listing some of the pre and post flood opportunities and specific strategies. The facilitator might then call on individuals to list the opportunities, strategies and stages to which they are applicable before moving on to a group discussion. REFERENCES: 1. o Instructor: a. Flood Hazard Management and Natural Resource Protection: Community Action Guide , FEMA, Chapters III, VII and VIII b. Trainers' Manual, Lesson Plan No. 15, FEMA. c. Coastal Student Manual, FEMA. 2. Participant: a. Flood Hazard Management and Natural Resource Protection: Community Action Guide , FEMA, Chapters III, VII and VIII. b. Coastal Student Manual, FEMA. REQUIREMENTS: . > Sufficient break out rooms for several groups of 15-20 people. Case study materials and worksheets on Oakton/Hampton County (found in Student Manual and in Appendix D of this manual). The Institute Director should carefully read this case study material prior to the Institute to determine whether or not it may need modification to best suit his/her particular region. (For example, for some parts of Texas and Louisiana, it might be appropriate to modify the case study to include reference to subsidence and delta problems whereas for parts of California the materials might be modified to reflect Pacific coastal problems such as landslides, tsuanamis, beach erosion, etc.) Small group discussion leaders should be provided case study materials in advance and have read it thoroughly before this session. -12 2- 4. Institute Director should conduct a special briefing for discussion leaders prior to the session. The briefing should include a review of the case materials, how to use them, how to conduct the session, what major point to focus on, etc. If the group leaders are not experienced as facilitators, the briefing session might include conducting a brief trial run of the session using facilitators as the audience and one of the director's staff as the facilitator. Following the trial run, the Director would conduct a critique of the session pointing out strengths and weaknesses. However, if the group leaders have had extensive experience conducting such sessions, this type of formal training may not be necessary. REMARKS: 1. This session is one of the most important training sessions of the conference. There is a lot of material to cover, and group leaders will need to be quite organized in their approach to the session. 2. There are six questions (letter a-f) that must be addressed during the two hour session, When one includes 15 minutes for reading the case study and general introductions, this leaves approximately 17 minutes to solicit group answers and then discuss each question. Note, however, that several of the questions can be answered very quickly and others discussed simultaneously. We suggest that the facilitator spend no more than 5 minutes soliciting answers (brainstorming) to each question. 3. The most important concept that must be developed during this session is that of the tradeoffs that must be made to develop a program that satisfies many (not all) of the critical interests who must support it. Therefore, we suggest that the group dis- cussion begin with question d while incor- porating answers generated in questions a, b and c. o -12 3- Don't get bogged down in the discussion of specific tools (e.g., PUD's vs. Transfer of Development Rights). Instead focus on overall strategies and the economic, social, political, and environmental impacts associated with each. a <* -125- Exercise D Use this chart to record the flood hazard management opportunities identified in the workshop discussion of the case example. Potential Opportunities for Flood Hazard Management Pre-Flood Situation Post-Flood Situation Within 100-Year Floodplain Structures ( Existing and Future ) Undeveloped Land Outside Floodplain but within community Outside Community but within watershed « > -127- Exercise E Use this chart to record the results of the workshop discussion relating to possible strategies identified in the case example. Refer to chart in selecting the most appropriate strategies. Flood stage where most applicable Affected Interests Trade-offs Pre- Flood Strategy (tool) During Flood > Post- Flood & -129- LESSON PLAN NO. 16 COURSE TITLE: Flood Hazard Management and Natural Resource Protection: The Coastal Setting LESSON TITLE: Final Small Group Discussions TIME: 1 Hour OBJECTIVE: To complete discussion and development of follow- up plans. SCOPE: Continued discussion of specific opportunities and strategies which should be implemented at the local and/or regional (state) level to improve flood hazard management identification of specific steps which participants intend to take following the Institute to achieve their goals. FORMAT: Small group discussions. Groups divided according to geographic area. Completion of group discussion a REFERENCES Instructor: a . Flood Hazard Management and Natural Resource Protection: Community Action Guide , FEMA, Chapters III and VI. b. Trainer's Manual, Lesson Plan No. 16, 12, FEMA. Participant: a . Flood Hazard Management and Natural Resource Protection: Community Action Guide , FEMA, Chapters III and VI. b. Coastal Student Manual 3 & REQUIREMENTS: Sufficient break out rooms for small group sessions equipped with easels, newsprint and magic markers. Group leaders should be instructed to summarize results of the group discussion on newsprint so that the sheets can be hung on the walls of the plenary session room prior to the start of the final session . > -130- REMARKS: 1. Using same techniques applied in earlier small group sessions, group leader assists participants in completing specific follow-up plans which will begin to address the most important flood hazard management needs of the region as identified by participants, (see Lesson Plan No. 12) 2. Group leader will record planned follow-up activities or newsprint to be presented during closing session. « -131- COURSE TITLE LESSON TITLE LESSON PLAN NO. 17 Flood Hazard Management and Natural Resource Protection: The Coastal Setting Community Flood Hazard Management: A Challenge to Work Together TIME: 1 Hour OBJECTIVES: 1. To give participants an opportunity to exchange information on planned follow-up activities . 2. To help participants achieve a sense of what was accomplished by the program. 3. To relate planned follow-up activities back to goals identified early in the conference. SCOPE: Presentation and discussion of group follow-up plans, concluding remarks by workshop director. o FORMAT 1. Plenary session. Reports from small group discussion leaders. Concluding speech. 2. Small group discussion leders each give 5 minute presentation describing group follow- up plans, which will be taped on walls of large room. 3. Following these presentations, workshop director will open up discussion to audience questions and comments, first on the specific group plans and then on the workshop in general 4. Finally, workshop director or special observer will give brief closing remarks, summarizing accomplishments of workshop and expectations for continued participant involvement in their own communities. -13 2- REQUIREMENTS: 1. Large room set up for plenary session. 2. Follow-up plans developed by small groups taped to the walls of the room. REMARKS: 1. You will want to keep small group reporters on a short timetable, as this part of the program can be dull if not done quickly. 2. The concluding speaker should be a good synthesizer who can listen to the small group reports and leave participants with a notion of what has been positively accomplished . 3. This would be an appropriate time to ask participants to fill out the Institute Evaluation forms provided in their student manuals or handed out at the session. (See Appendix F for sample Evaluation.) * -13 3- COURSE TITLE LESSON TITLE LESSON PLAN NO. 18 (OPTIONAL) Flood Hazard Management and Natural Resource Protection: The Coastal Setting Designing a Community Flood Hazard Mitigation Program: A Question of Trade-Offs TIME: 3.5 Hours OBJECTIVE: 1. To help participants develop a comprehensive community flood hazard management program in a realistic context of legal, institutional, social and economic constraints. SCOPE: Negotiation among interest groups for acceptable level of flood protection; local government action to implement specific strategies, assessment of flood related damages associated with particular level of flood protection. FORMAT Simulation role playing exercise: Within the Plenary session room, participants divide into 3 smaller groups, each representing a single community. Participants adopt various roles and become involved in discussion of various strategies to resolve their hypothetical community flooding problems. REFERENCES: 1. Instructor: a. Planning for Acts of God and Nature (PAGAN: Coastal or PAGAN: Riverine) 2. Participant: a. Community Descriptions, Role Descriptions, Game Rules, Levels of Flood Protection, Damage Tables (Taken from PAGAN) REQUIREMENTS: o 1. Anyone planning to conduct the game should read through PAGAN very carefully to develop a good understanding of the rules and requirements and to determine how the game might be used for his/her particular group. A copy of both versions of PAGAN (Coastal and Riverine) is included in Appendix E of this manual. •134- 2. The game theoretically can be run with as few as six or as many as 165 persons. However, the optimum run calls for about 55 players. 3. Game should be conducted in a large room with sufficient space to separate the communities and various wards within each community. Actual space requirements will obviously vary according to the size of the group. 4. The game requires approximately 3 hours to play and another 1/2 hour to debrief. 5. Participants should be allowed at least 15 minutes to read their materials. The game director should spend another 15 minutes explaining the rules and objectives of the game . REMARKS 1. The game requires a substantial amount of time but can provide a very valuable learning experience. It is most appropriate for a group which has a good basic understanding of community flood hazard management. However, for an unsophisticated group it could also serve as a provocative introduction to some of the major issues to be considered. 2. The game can easily be conducted as an independent unit, totally separate from the rest of the training institute. In fact, it might appropriately serve as a follow-up activity which Institute participants could consider conducting in their own communities following their attendance at a training institute. 3. The game is extremely flexible and can accommodate a group ranging in size from 6-16 5 people. For a small group (6-40 people) the game should be conducted using only one of the three hypothetical communities. For groups larger than 40 the game can be expanded to include the additional two communities . 4. Simulation exercises such as PAGAN are designed to provide participants with a realistic learning experience. -13 5- As such they differ significantly from the standard lecture format of teaching. Consequently it is not uncommon for many people when first exposed to simulations to express serious reservations about "playing games." In our experience, if the game is run well, most people once involved in the simulation discover it to be an exciting, extremely insightful and in fact enjoyable experience. The most difficult job is convincing the reluctant ones to "give it a try." However, we feel it's only fair to point out that simulation exercises, if conducted improperly, can result in an unplesant un- productive learning experience. Potential users of this simulation exercise should carefully consider a number of factors: (1) audience (How receptive or resistant are they likely to be to "games"?) (2) objectives (What do I want participants to learn from this session? Is the simu- lation the best way to accomplish this?); (3) Instructor (Is there someone qualified to administer the game, someone who under- stands the rules? Is he/she enthusiastic and can he/she quickly improvise if necessary to resolve any problems which may surface during the game?) If the user determines that the audience is likely to be receptive to this type of exercise, that the hands on learning experience is a desirable objective, and that an experienced and/or confident game operator is available, then he/she can feel confident about using PAGAN. > -137- B. Riverine Training Institute The riverine training program does not differ significantly from the coastal training program with the exception of a few of the sessions: namely, Lesson Plan Nos . 3, 5 and 15. Therefore, we have not reproduced in this section complete version of the Riverine Program but instead included here only revised versions of Lesson Plans 3, 5 and 15. Those of you wishing to conduct a training program in riverine communities need simply use the model Coastal Program outlined in this manual substituting Lesson Plans 3, 5 and 15 described here and making other necessary minor modifications to the remaining Lesson Plans. We suggest you read carefully through the coastal program identifying any changes that should be made to reflect riverine flooding situations. For example, in Lesson Plan No. 8 "The Federal and State Framework for Flood Hazard Management Decision Making", you will want to eliminate the discussion of the coastal zone management program. And in Lesson Plan No. 10 "Flood Hazard Management: Issues and Programs", you again should eliminate coastal zone management as a workshop topic and should also revise some of the workshop questions eliminating any references to predominantly coastal issues (e.g., building standards designed to prevent hurricane wind damage and elevation standards designed to include wave height considerations) .) -139- ) COURSE TITLE: LESSON TITLE LESSON PLAN NO. 3 Flood Hazard Management and Natural Resource Protection: The Riverine Setting Flooding and Flood Hazard Management in Riverine Areas: An Overview TIME: 1.5 Hours OBJECTIVES 1. Create participant understanding of inherent complexities of riverine flood hazard management. 2. To give historical perspective on riverine flood hazard management. 3. To address changing directions in riverine flood hazard management in response to the perceived weaknesses of the traditional approach. SCOPE: An historical perspective on riverine flood hazard management, the traditional problem solving approach vs. new directions; why government policies are changing, how policies have changed and in what federal and state programs the new policies appear; watershed drainage concepts, ecologically sensitive areas, technical, social and economic difficulties of state and local governments. FORMAT Plenary Session. Film, followed by round table discussion reacting to issues raised by film. Resource people: Moderator, plus three discussants from different perspectives; i.e., a) local government; b) environmentalist; c) disaster relief specialist; Skilled moderator will lead the discussion by posing a series of questions to panel members > -140- REFERENCES: Instructor: a . Flood Hazard Management and Natural Resource Protection; Community Action Guide, FEMA, Chapters I and II. b. Trainers' Manual, Lesson Plan No. 2 c. Riverine Student Manual Participant: a . Flood Hazard Management and Natural Resource Protection: Community Action Guide , FEMA, Chapters I and II. b. Riverine Student Manual REQUIREMENTS: 1. Large room set up for plenary session. 2. The session will start with a dramatic film depicting riverine flooding and the tremendous damages resulting. The film used in the pilot training institute was a 1930's classic entitled "The River." It was produced by the Federal government and should be available from a number of sources including your local public library 3. The film should be reserved well in advance of the Institute. The Institute Director should screen the selected film in advance to ensure its appropriateness. 4. Movie projector, screen (slide projector) should be reserved from conference center in advance. 5. Roundtable discussion will require that a table with a sufficient number of chairs and microphones be set up in front of the room. The table should allow discussants to look at each other. REMARKS The session is designed to expose partici- pants to the major problems and issues of riverine flood hazard management as they bear on state and local governments. It is intended as an overview and not a com- prehensive treatment. Panel members should be informed that they will not be expected to deliver any formal remarks but rather to answer specific questions from their particular perspective. The questions should be sent to panel members at least two weeks prior to the Institute. } -141- 2. Prior to this session, the director should bring panel members together to review once more the objectives of the session to pre- view the film and to develop a strategy for eliciting responses from panel members. 3. The director should provide panel members with a copy of the Resource Manual ahead of time and ask them to read Chapters I and II in preparation for their session. 4. The director should carefully brief the moderator on his/her role, stressing the importance of keeping responses brief and to the point, ensuring that all members of the panel have a fair opportunity to express their views, that the audience has ample opportunity to ask qustions and that the session begins an ends on time. 5. This film selected for the Riverine Model Program offers an historical perspective on the causes and results of flooding along the Mississippi River and is particularly appro- priate for areas in the mid-West. However, those conducting Institutes in other regions of the country may want to use another film. If you feel that the film described above is not likely to be appropriate, you should begin analyzing alternatives early in the Institute planning process. The steering committee may be very helpful in identifying appropriate films. Do not plan to use a film that you have not personally screened to make certain it meets the objectives of this section of the Institute. QUESTIONS TO BE CONSIDERED: 1. What are the special problems of protecting the riverine floodplain? (Dynamic nature of riverine floodplain, fragility of riverine ecosystem. ) 2. What is the relationship of watershed and drainage management to riverine flooding problems? 3. What are some of the economic and social factors which contribute to the development of floodplains? 4. What are the weaknesses of traditional approaches to riverine flood hazard management? -14 2- 5. What are the changing directions in our current approach to riverine flood hazard management? * -14 3- > COURSE TITLE LESSON TITLE LESSON PLAN NO. 5 Flood Hazard Management and Natural Resource Protection: The Riverine Setting The Nature of Flooding in Riverine Communities and the Special Role of Riverine Ecological Resources in Flood Hazard Mitigation TIME: 2 Hours OBJECTIVES: 1. 2. To assist participants in identifying and understanding the causes of flooding and the nature of flood hazards in their community. To help participants understand the functioning of important riverine ecosystems for hazard mitigation purposes. 3. To familiarize participants with various uses of natural resource data and maps as community planning and decision-making tools. SCOPE: Description of special ecological characteristics and hazard mitigation functions of natural riverine systems (wetlands, transition zones, river corridors) Presentation of land use suitability concepts. Hands on experience utilizng natural resources maps as decision-making tools. FORMAT: 1. Small group discussion sessions of 15-25 people . 2. The session, if possible, should be directed by a discussion leader who is someone other than the resource person presenting the mini- lecture . ) An appropriate resource person will give a 15-minute "mini-lecture" using whatever audio-visuals they choose. Their presen- tation should address (a) the nature of flooding problems in communities located in one of these three areas, and (b) the role played by ecological resources of these communities in moderating the hazard. Following the "mini-lecture", the discussion leader will answer questions from the audience regarding their own community situations and -144- explore with them special ecological resources they might consider protecting in their com- munities . 5. After approximately 50 minutes the workshop leader should call for a 10-minute break during which he/she will spread out the map- ping materials on the tables. Participants should be encouraged to stay in the room so as not to lose any time. 6. Next the leader will give a brief presentation (5-10 minutes) highlighting the use of land suitability as a planning tool. In his/her presentation the leader will briefly describe the land suitability analysis process involving (1) the identification of environmental con- siderations or elements, (2) interpretation of this data on resource by resource basis through the application of management principals to determine resource limitations, (3) the mapping of each resource variable on a common scale, and (4) the overlaying of variables to form an environmental composite or suitability map. 7. Finally, participants will have the opportunity for some actual experience working with mapping materials especially prepared for this session. Materials will include (a) U.S.G.S. quad sheet for a typical community type in that region (b) several mylar overlays depicting flood hazards, soils, wetlands, zoning and current land use, (c) a clear acetate sheet which participants can mark on with grease pencils, (d) handout describing materials and symbols displayed on maps. 8. How these materials are used in the exercise will depend on the sophistication of the group members. Therefore beginning this final session the leader should find out from workshop participants what experience they've had with maps. 9. If the group is relatively unfamiliar with land use suitability analysis the workshop leader should start off by directing partici- pants to take the U.S.G.S. quad sheet and then overlay the flood hazard mylar to identify the 100-year flood boundaries. Next they might overlay the soils mylar and identify those areas suitable for development with and without -14 5- ) 10. septic tanks and then compare this information to the current zoning overlay noting any incon- sistencies. Finally, they could repeat this process with the other mylar overlays again noting inconsistencies with current land use and/or zoning. If the group is more sophisticated, then the discussion might focus on management policies which the community might adopt (based on existing data) to correct per- ceived problems or what additional data needs existed and how they might be resolved. REFERENCE: O 1. Instructor: a. Flood Hazard Management and Natural Resource Protection: Community Action Guide , FEMA, Chapter II. b. Riverine Student Manual. c. Trainers' Manual, Lesson Plan No. 5, Appendix B. 2. Participant: a. Riverine Student Manual. b . Flood Hazard Management and Natural Resource Protection: Community Action Guide, FEMA, Chapter II. REQUIREMENTS: X } 1. Concurrent workshops should be designed to address the range of distinct riverine ecosystems and subsequent flooding prob- lems existing in a particular geographic area. Examples of distinct riverine eco- systems includes: U-shaped river valleys with moderate flood plains, V-shaped river valleys with narrow flood plains, dry wash areas, areas susceptible to mud- slide, etc. The Institute Director with assistance from his/her steering committee should identify those riverine ecosystems common to their particular geographic region. Most regions will encompass only one, possibly two of these ecosystems. However, in some parts of the country, (e.g., California), it may be necessary to address several of these ecosystems with separate workshops. -146- 2. If more than one riverine ecosystem will be addressed in these workshops, then participants should be asked to sign up prior to the Institute for the workshop topic which most closely matches their geographic, ecologic con- ditions. This will provide the Institute Director with a good sense of how many workshops of each type to organize. If the Institute Director is familiar with the geographic/ ecologic conditions of each of the communities invited to the Institute he/she can assign individuals to the most appropriate workshops. 3. If only one riverine ecosystem will be addressed in these workshops, then the Institute Director at registration should assign participants to these sessions to ensure an approximately equal balance of participants in each. 4. The optimal workshop size for these sessions is 15-20 participants. The Institute Director should ensure that sufficient qualified resource people are available to enable the Director to keep keep these workshops to the optimal size. Qualified resource people might include scientists, natural resource planners or other individuals with a good understanding of various types of riverine ecologic systems. These resource people may also serve as work- shop discussion leaders or the Institute Director may choose to appoint someone else as official discussion leader. 5. There should be sufficient breakout rooms to accommodate the number of work- shops planned. Each breakout room should contain 2 tables and sufficient chairs to accommodate 15-20 people. Each should be equipped with an easel, newsprint and magic markers and 2-3 copies of the map- ping materials (community base maps and natural resource overlays) to be used in this session. Workshop rooms should also contain any audio-visual equipment (slide projectors, overhead projectors, screens, etc.) requested by the workshop leaders. -147- REMARKS: 1. Once again the Institute director will need to evaluate the mapping tools provided with his trainers' manual to determine whether or not the maps are appropriate teaching tools for this audience. Keep in mind that the purpose of the mapping exercise is to familiarize the participants with the type and use of maps. The maps used for the exercise need not match exactly with the type of flood hazard problems reflected by communities participating in the Institute. On the other hand, if the types of natural resources are dramatically different than those reflected in the maps provided, the exercise map may be more useful if revised. 2. The actual experience of participants using maps to discover the manner in which community development patterns and flood hazard mitigation strategies fit together is an important part of this exercise. When the mapping exercise is utiized the group should organize into two smaller groups, each standing around a table with the mapping materials on it (see blue lines of mapping materials, appendix B) . The interaction of the participants as they work together to answer questions for the mapping exercise (see briefing memorandum, Lesson Plan No. 5, Appendix B,) is an important part of the learning experience. 3. If the Institute Director decides that he needs to develop a new set of mapping materials around a geographic area with resources, opportunities, and flood pro- blems more common to participating com- munities, he will wish to: • Select an area which has had a variety of natural resource maps completed and for which a Flood Insurance Rate Map has been completed. The area should be partly, but not fully, developed so that the exercise can be used to discuss future opportunities as well as current problems -148- • Select and obtain a base map (usually a U.S. Geological Survey quad sheet) of an appropriately large scale — not less than 1:24,000 — containing both natural features and development patterns • Select natural resource maps and land use maps useful for analysis of the interactions between development, flood hazards and natural resources. The maps used in the exercise described in this manual include: — Soils map; -- Wetlands map; -- Zoning map; — Development map; and — Floodway/f lood boundary map developed from a Flood Insurance Rate Map. • The natural resource and land use maps selected to overlay the base map should be redrawn onto mylar overlays and, of course, put on the same scale as the base map. • University geography or environmental studies departments may be the best source of assistance in identifying possible communities to serve as the model for this exercise. They may also be able to supply a graduate student who can inexpensively redraw and rescale the map overlays. 4. Blue line copies of the maps prepared for this riverine institute are included in Appendix B. Reproduction copies of these materials can be obtained from the FEMA office in Washington, D.C. Training and Education Division. 5. The workshop handout materials included in Appendix B are designed to be part of the Student Manual. -149- QUESTIONS TO BE CONSIDERED: 1. What are the special ecological areas comonly found within river corridors? 2. Where, within the river corridor, do they commonly occur? In what associations? 3. What role do each of these resources play in flood hazard mitigation? 4. How sensitive are these resources to the activities of man? 5. How can these resources be protected? What management policies should be applied? 6. What is meant by a land suitability analysis? 7. How does such an analysis help identify flood hazard mitigation/resource protection opportunities? 8. What role does resource mapping play in this analysis? 9. What type of resource and maps exist or may be available for my community? From what sources? 10. What environmental factors or values are most important in my community? 11. What is a suitable map base on which to represent these factors? -151- o LESSON PLAN NO. 15 COURSE TITLE: LESSON TITLE: Flood Hazard Management and Natural Resource Protection: The Riverine Setting Designing a Flood Hazard Management Program in Riverine Communities TIME: 2.0 Hours OBJECTIVES: 1. 2. 3. 4. 5. 6. To examine in a realistic setting the factors that affect the opportunities for flood hazard management in riverine communities. To examine the basic regulatory framework likely to result from community participation in the NFIP, and other Federal and State programs . To examine the range of strategies and tools that might be linked together to develop a comprehensive flood hazard management program according to the appropriate flood hazard management stage. To identify the economic and social interests that may be affected by alternative strategies. To explore the range of public participation techniques which would be useful when selecting and implementing a comprehensive community flood hazard management program. To establish the tradeoffs that must be made by a community in designing a flood hazard management program. SCOPE: Case study information on physical characteristics, population, flood problems, economic/social con- siderations, political context; present community maps and flood hazard areas; pre-flood and post- flood opportunities, goals development, legal institutional framework, specific strategies. FORMAT 1. Concurrent workshops. Participants divide into groups of 15-20 people. 2. Selected and trained facilitator leads group in discussion of case study materials. -152- $ 3. In small groups, the facilitator asks partici- pants to take 5 to 10 minutes to read the case study. Then facilitator will outline the objectives of the session and ask partici- pants to introduce themselves. 4. Facilitator will pose the following questions in the order shown: a. Who are the interests with a stake in flood hazard management? b. What is the nature of their stake? c. What needs of various interests will have to be met in order to obtain their support in meeting flood hazard management goals? Local government Low income Business Banker Real estate developer Salesman Industry/Land Water dependent/Water based industry M Civic Leader En v i r onme nt al i s t d. What kinds of tradeoffs (economic/social/ environmental/political) might various interests be willing to make? e. What kinds of strategies can be adopted to reflect these tradeoffs and to respond to the flooding problems of this community? f. What are the likely impacts of various strategies on various interest groups? On community as a whole? 5. The preferred techniques to be used in addressing these questions is called small group brainstorming (see page 56 ). Using this technique, the facilitator goes around the room asking participants questions and recording these answers on newsprint. Once all answers have been recorded, then the facilitator leads the group in a discussion of several of the questions beginning with question d but incorporating gm answers to questions a, b and c where appropriate . -153- 6. 7. After each question has been discussed, participants should be asked to spend a few minutes considering how the answer might differ in their community. The attached Exercises D and E developed to help participants the questions regarding opport strategies in the pre- and pos periods. The facilitator migh ticipants to take 5-10 minutes vidually fill out charts listi the pre- and post-flood opport specific strategies. The faci then call on individuals to li tunities, strategies and stage they are applicable before mov group discussion. have been address unities and t-flood t ask par- to indi- ng some of unities and litator might st the oppor- s to which ing on to a REFERENCES ) Instructor: a. Flood Hazard Management and Natural Resource Protection; Community Action GuTde", FEMA, Chapters III, VII and VIII b. c . Trainers' Manual, Lesson Plan No. 15, FEMA. Riverine Student Manual, FEMA. Participant: a. F lood Hazard Management and Natural Resource Protection: Community Action Guide , FEMA, Chapters III, VII and VIII b. Riverine Student Manual, FEMA. REQUIREMENTS: \ ) 1. Sufficient break out rooms for several groups of 15-20 people. 2. Case study materials and worksheets on Rowlett Creek (found in Student Manual and in Appendix D of this manual). Prior to the Institute, the Institute Director should carefully read this case study material prior to the Insti- tute to determine whether or not it may need modification to best suit his/her particular region. (For example, in parts of California and Arizona, the materials might be modified to include dry wash flooding conditions.) -154- 3. Small group discussion leaders should be provided case study materials in advance and have read it thoroughly before this session. 4. Institute Director should conduct a special briefing for discussion leaders prior to the session. The briefing should include a review of the case materials how to use them, how to conduct the session, what major points to focus on, etc. If the group leaders are not experienced facilitators, the briefing session might include conducting a brief trial run of the session using facilitators as the audience and one of the director's staff as the facilitator. Following the trial run, the Director would conduct a critique of the session pointing out strengths and weaknesses. However, if the group leaders have had extensive experience conducting such session, this type of formal training may not be necessary. REMARKS: 1. This session is one of the most important training sessions of the conference. There is a lot of material to cover and group leaders will need to be quite organized in their approach to the session. 2. There are six questions (letter a-f) that must be addressed during the two hour session. When one includes 15 minutes for reading the case study and general introductions, this leaves approximately 17 minutes per question. Note however that several of the questions can be answered very quickly and others simultaneously. We suggest that the facili- tator spend no more than 15 minutes soliciting answers (brainstorming) to each question. 3. The most important concept that must be developed during this session is that of the tradeoffs that must be made to develop a program that satisfies many (not all) of the critical interests who must support it. Therefore we suggest that group discussion begin with question d while incorporating answers generated in questions a, b and c. 'J -15 5- Don't get bogged down in the discussion of specific tools (i.e., PUD's vs. Transfer of Development Rights) . Instead focus on overall strategies (i.e., the portion of density tradeoffs) and the economic, social, political, and environmental impacts associated with each. i» oj >J -157- EXERCISE D Use this chart to record the flood hazard management opportunities identified in the workshop discussion of the case example. Potential Opportunities for Flood Hazard Management Pre-Flood Situation Post-Flood Situation Within 100-year Floodplain Structures ( Existing and Future ) Undeveloped Land Outside Floodplain but within community Outside Community but within watershed -159- J EXERCISE E Use this chart to record the results of the workshop discussion relating to possible strategies identified in the case example. Refer to chart in selecting the most appropriate strategies. J ^ Strategy (tool) Flood stage where most applicable Pre- Flood During Flood Post- Flood Affected Interests Trade-offs I 23 J APPENDIX A SAMPLE INVITATION LETTERS, BRIEFING MEMOS Appendix A SAMPLE INVITATION LETTERS TO SCHOLARSHIP PEOPLE: Dear I am pleased to invite you to participate in a three-day Flood Hazard Management Training Institute to be held from 12:00 noon Sunday, May 18 to 4:30 p.m. on Tuesday, May 20. This Institute, for participants from Ohio, Indiana, Michigan, Illinois, Wisconsin and Minnesota is one of two pilot conferences in the country. Over 120 citizen leaders from this region are being asked to attend. The purpose of the Institute is to develop local leadership for public participation in designing and implementing a community flood hazard management program. Citizen leaders will learn about flood boundary mapping, design of community flood hazard mitigation programs, the National Flood Insurance Program, the role of ecological resources in flood hazard mitigation, and public participation techniques in flood hazard management. Every participant has been carefully selected on the basis of several criteria, including an interest in creative floodplain management, an economic interest in floodplain management, a role as a civic leader, elected official or engineer and the potential for influencing and further educating others in the community. Active future involvement in the planning for flood hazrd mitigation is a critical factor in consideration of participants. You have been recommended as an individual who meets these criteria for Institute participation. As an active [environ- mentalist, civic leader, local official] you will, I believe gain a great deal from this Institute. One major focus of the sessions will be the key role which natural resources can play in flood hazard mitigation. This is an important mesage to convey to local community leaders and environmental activists like you are perhaps best suited to make this point. I do hope you will be able to accept this invitation to attend. As I'm sure you will understand, we consider it important that Institute participants commit themselves to be present through- out the scheduled activities from Sunday noon through Tuesday afternoon. Limited scholarship funds are available to cover the expenses of those individuals who might otherwise be unable to attend the Institute. If you will require financial assistance please so indicate on the attached Registration Form. Any contribution which you or your organization can make towards your expenses will enable us to stretch scholarship funds to include other worthy participants. (continued ) TO SCHOLARSHIP PEOPLE -2- i brochure) and Chicago's O'Hare airport at 11:00 a.m. and 1:00 p.m. on Sunday and at 5:30 p.m. on Tuesday. Necessary transportation will be provided, free of charge, between the newly renovated Illinois Beach Resort (see enclosed I am enclosing a preliminary program, fact sheet and a registration/information form. Please return the form and a check for an appropriate amount to me before April 21. If you have any questions, please call or write me or one of the members of the Regional Advisory Committee listed on this stationary. I hope you will be able to be with us at the Institute. Sincerely, -3- REGISTRATION FORM (SENT ONLY TO THOSE ELIGIBLE FOR SCHOLARSHIPS) Mail to: Richard L. Robbins, Regional Coordinator, Lake Michigan Federation, 53 W. Jackson Blvd., Suite 1710 Chicago, IL 60604 Name Organization Preferred Mailing Address City State Zip Phone Daytime Evening There is no registration fee associated with the Institute. A charge of $85.40 covers luncheons and dinners from Sunday noon through Tuesday afternoon, accommodations for two nights, double occupancy, information materials, and the Institute Training Manual. Limited single occupancy is available at $20.90 additional for the two nights. REQUEST FOR FINANCIAL ASSISTANCE I would like to attend the Institute, but can only do so with the amount of financial assistance requested below: Conference fee (Room and board) $85.40 Round trip transportation costs (from to O'Hare) Total costs of Institute attendance Less my (or my organization's) contribution TOTAL ASSISTANCE REQUESTED I would like to share a room with I would like to have a roommate assigned. I do/ do not smoke . I am/ not willing to share my room with a smoker. I will need transportation from the Chicago airport. My flight arrives at O'Hare on at (Date) (Time) I plan to drive to the Institute and would be willing to take a passenger. -4- TO GENERAL ATTENDEES: Dear I am pleased to invite you to participate in a three-day Flood Hazard Managment Training Institute to be held from 12:00 noon Sunday, May 18 to 4:30 p.m. on Tuesday, May 20. This Institute, for participants from Ohio, Indiana, Michigan, Illinois, Wisconsin and Minnesota is one of two pilot confer- ences in the country. Over 120 citizen leaders from this region are being asked to attend. The purpose of the Institute is to develop local leadership for public participation in designing and implementing a community flood hazard management program. Citizen leaders will learn about flood boundary mapping, design of community flood hazrd mitigation programs, the National Flood Insurance Program, the role of ecological resources in flood hazard mitigation, and public participation techniques in flood hazard management. Every participant has been carefully selected on the basis of several criteria, including an interest in creative floodplain management, an economic interest in floodplain management, a role as a civic leader, elected official or engineer and the potential for influencing and further educating others in the community. Active future involvement in the planning for flood hazard mitigation is a critical factor in consideration of participants. Participants in the Institute will include planners, local government officials, bankers, insurance experts, developers and real estate agents, appraisers, Red Cross and Civil Defense officials, consulting engineers, environmentalists and other concerned citizens. You have been recommended as an individual who meets these criteria for Institute participation. As a concerned citizen and local taxpayer, you stand to benefit considerably from an improvement in your communities flood hazard management program. For flooding carries with it tremendous costs not only to the flood victims but also to all community taxpayers who must pay the costs to repair public roads and utilities and to cover emergency police and rescue services. The training institute will provide you with an opportunity to explore alternative strategies to improve community flood hazard management progrms . I do hope you will be able to accept this invitation to attend. As you will I'm sure understand, we consider it important that Institute participants commit themselves to be present throughout the scheduled activities from Sunday noon through Tuesday afternoon. -5- (continued) TO GENERAL ATTENDEES Necessary transportation will be provided, free of charge, between the newly renovated Illinois Beach Resort (see enclosed brochure) and Chicago's O'Hare airport at 11:00 a.m. and 1:00 p.m. on Sunday and at 5:00 p.m. on Tuesday. I am enclosing apreliminry program, fact sheet and a registration/ information form. Please return the form and a check for an appropriate amount to me before April 21. If you have any questions, please call or write me or one of the members of the Regional Advisory Committee listed on this stationary. I hope you will be able to be with us at the Institute Sincerely, -6- REGISTRATION FORM Mail to: Richard L. Robbins, Regional Coordinator, Lake Michigan Federation, 53 W. Jackson Blvd., Suite 1710 ^ Chicago, IL 60604 Name Organization Preferred Mailing Address City State Zip Phone Daytime Evening There is no registration fee associated with the Institute. A charge of $85.40 covers luncheons and dinners from Sunday noon through Tuesday afternoon, accommodations for two nights, double occupancy, information materials, and the Institute Training Manual. Limited single occupancy is available at $20.90 additional for the two nights. I plan or do not plan to attend the Institute. I enclose a check for $85.40 ($106.30 single) made payable to the Lake Michigan Federation. NOTE: All payments should be received before April 21. I would like to share a room with I would like to have a roommate assigned. I do/ do not smoke. I am/ am not willing to share my room with a smoker. I will need transportation from the Chicago airport. My flight arrives at O'Hare on at (Date) (Time) I plan to drive to the Institute and would be willing to take a passenger. -7- TO SPEAKERS Dear I am delighted you will be able to speak at the three-day Flood Hazard Management Training Institute to be held from 12:00 noon Sunday, May 18 through 4:30 p.m. Tuesday, May 20. The time and topic of your presentation are described below. A copy of the program, fact sheet and other materials are enclosed. The Flood Hazard Management Training Institute is one of two pilot conferences in the country which is designed to develop local leadership for public participation in planning and implementing a community flood hazard management program. Our Midwest Institute for the states of Ohio, Indiana, Michigan, Illinois, Wisconsin and Minnesota will be held at the newly renovated Illinois Beach Resort along Lake Michigan in Zion, Illinois. The Institute will focus on flood boundary mapping, design of community flood hazard mitigation programs, the National Flood Insurance Program, the role of ecological resources in flood hazrd mitigation, and public participation techniques in flood hazard management. Expected participants include over 120 people (20 from each state). These will consist of planners, local government officials, bankers, insurance experts, developers and real estate agents, appraisers, Red Cross and Civil Defense officials, consulting engineers, environmentalists and other concerned citizens . Two groups are co-sponsoring the Institute. The Conservation Foundation is a national non-profit research and communication organization dedicated to the wise use of resources. The Lake Michigan Federation is a four state citizens supported, environ- mental agency, concerned with water quality. Please fill in the enclosed registration form telling us when you will arrive and depart, audio-visual, and other equipment needs. Please attach a personal vitae and return to the Lake Michigan Federation before April 21. (continued ) TO SPEAKERS -8- We will be holding a briefing session for all workshop leaders, speakers, and moderators at 1:00 p.m. on Sunday to review the goals and objectives of each particular session. Each resource person should plan on attending this session or allotting time before their particular session to discuss details of the program and their specific roles. The Sunday afternoon briefing is particularly important for those resource persons involved in the Monday afternoon workshops. Necessary transportation will be provided, free of charge, between the newly renovated Illinois Beach Resort (see enclosed brochure) and Chicago's O'Hare airport at 11:00 a.m. on Sunday and at 5:30 p.m. on Tuesday. Thanks again for your interest. We will send you training materials provided to all participants at the Institute as they are available. Please review them in your area of presentation. Your presentations include: Sincerely, i -9- > O SPEAKERS REGISTRATION FORM Name Title Organization Address City State Zip Phone Daytime Evening I will be arriving at the Institute at __^ on (Time) (Date) and will be leaving at on . (Time) (Date) Please provide me with the following meals (circle those applicable. D Sunday L D Monday L Tuesday and a double room for the following nights (circle those applicable) Sunday Monday A single room will cost you or your agency $10.45 per night extra. I will need the following audio-visual equipment: Please attach a personal vitae or a short six-line description of your background which is suitable for incorporation into the program for the Institute. Please return the registration form, personal vitae, and appropriate payment to the Lake Michigan Federation before April 21. The fee for double occupancy is $42.70 ($53.15 single per day) and include one luncheon and one dinner. The cost for any portion of the above package will be computed at your request. Please mail to: Richard L. Robbins, Regional Coordinator, Lake Michigan Federation, 53 W. Jackson Blvd., Suite 1710, Chicago, IL 60604 -10- SAMPLE BRIEFING MEMO TO PANEL MEMBERS "FLOODING AND FLOOD HAZARD MANAGEMENT IN COASTAL AREAS: AN OVERVIEW" Thank you for agreeing to serve as a panel member in the session on Sunday evening May 11 during the Region IV Coastal Flood Hazard Management Training Institute. The purpose of this introductory session is to provide participants with an understanding of the serious threat caused by coastal flooding as well as the inherent complexities of coastal flood hazard management. In this session, we hope to explore the perceived weaknesses of traditional approaches to flood hazard management and possible alternative, more effective solutions . The session will begin with a one-half hour film entitled "A Lady Named Camille" which vividly illustrates the devastating impacts of a major hurricane and raises some important questions concerning human occupation of coastal high hazard areas. The film is intended to set the stage for the panel discussion which will follow immediately. We are not asking panel members (who will include individuals from both the private and public sectors with considerable experience/expertise relating to coastal flood hazards) to deliver any prepared remarks. Rather we will ask that you participate in a roundtable discussion of key questions raised by either the moderator or members of the audience, drawing upon your own personal experiences. A list of questions which might be addressed during this session is attached. Please review these in preparation for your roundtable discussion. Also attached is a list of panel members including their addresses and phone numbers in the event you'd like to contact any of them prior to the institute. You should refer to the detailed program which you received earlier to get a good sense of how this session fits into the overall program. Also, you may find the background reading materials ("Community Action Guide Summary") which you'll be receiving shortly in the mail helpful in preparing for this session. J> -11- (continued) TO PANEL MEMBERS "FLOODING AND FLOOD HAZARD MANAGEMENT IN COASTAL AREAS: AN OVERVIEW" We would like to meet with all of you immediately prior to this session to once more review the objective of the session and to answer any questions. The best opportunity to do this will probably be during dinner Sunday evening. We will confirm the exact time and place of this meeting at registration. We look forward to meeting all of you and once again, thanks for agreeing to contribute to this most important training institute. ( ) -12- TO PANEL MEMBERS "THE ROLE OF PUBLIC PARTICIPATION IN COMMUNITY FLOOD HAZARD DECISION MAKING Thank you for agreeing to serve as a panel member in the Monday morning session (9:45-10:45 a.m.) during the Region IV Coastal Flood Hazard Management Training Institute. The purpose of this session is to establish the importance of involving the public in developing a community flood hazard management program. The format will involve a one-half hour speech followed by a roundtable (panel) discussion of specific questions raised by the moderator and members of the audience. Dan O'Connell of the FAU/FIU Joint Center in Florida will deliver the opening speech. He will discuss some of the positive benefits resulting from effective public involvement and identify some of the key decision-points where public input could be most valuable. He will also talk about means to achieve effective public participation as well as some possible criteria for evaluating the success of a public participation effort. Following his speech, Mr. O'Connell will sit down with other panel members (representing a diverse range of interests) to answer questions posed by the moderator. The audience will also be encouraged to ask questions. The purpose of the roundtable discussion will be to elaborate on points made during the speech, and to elicit from other panel members new information or differing views about public participation. Panel members will not be asked to deliver any prepared remarks. Instead you will be asked to respond to specific questions based on your own experiences. You should refer to the detailed program which you received earlier to give you a good sense of how your session fits into the overall program. We've attached a list of the type of questions we hope will be addressed during this session, either in the opening speech or follow-up discussion period. You should find these useful in preparing for your session. Also attached is a list of panel members including addresses and phone numbers, should you wish to contact anyone prior to the institute. The background reading materials ("Community Action Guide" ) which you will be receiving shortly in the mail should also be helpful to you in preparing for this session. a •■3 -13- TO PANEL MEMBERS "THE ROLE OF PUBLIC PARTICIPATION IN COMMUNITY FLOOD HAZARD DECISION-MAKING We would like to meet with all of you participating in this session sometime during the institute to once more review the objectives of the session and to answer any questions. Probably sometime on Tuesday evening will be most convenient. We will try to confirm an exact time and place for this meeting at registration on Sunday. Once again, thank you for agreeing to participate in this very important training institute. We look forward to meeting you on May 11. J " 1 APPENDIX B MAPPING EXERCISE MATERIALS (COASTAL) Appendix B Coastal SAMPLE BRIEFING MEMORANDUM To: Workshop Leaders "Identifying Natural Resources and Flood Hazard Data Sources For Decision-making" — "Mapping Exercise" Thank you for agreeing to serve as a workshop leader for the Sunday, May 18, evening session (7:45-9:15 a.m.) during the Region IV Coastal Flood Hazard Management Training Institute. The workshops you will be leading represent an important element of the training program. The purpose of this session is two fold: (1) to describe the special ecological charac- teristics and hazard mitigation functions of coastal eco- systems, (2) to familiarize participants with several types of maps commonly available to communities and to increase participant appreciation for the use of maps as essential flood hazard mitigation planning tools. The session will be divided into two parts. During the first hour, group discussion will focus on coastal ecosystems and the special role natural resources can play in hazard mitigation. You should begin the session by giving a brief 20-25 minute presentation using slides or any other visuals you may find useful in your talk. You should highlight the causes of flooding and flood damage in a particular geographic area and describe the special qualities of typical coastal ecosystems such as beaches and oceans, tidal rivers, and/or estuaries. You will also want to point out what role these natural resources can play in reducing flood hazards. Follow- ing your presentation, you should answer questions from the audience. At approximately 10 minutes before the first hour is up you should close discussion and give participants a brief break but encourage them to stay in the room. During this break you should distribute the mapping materials on the tables in pre- paration for the next portion of the session. During the second part of this session you will be leading the group in mapping exercise on land use suitability. You should begin this portion of the session with a very brief (5-10 minute) presentation on the principles of land use suita- bility analysis. A land suitability analysis is a process of data gathering, interpretation, and representation which results in a land clasif ication scheme reflecting the natural suitability or carry capacity of the land. The analysis is a stepped process involving: the identification of environmental considerations or elements (this identification could be based on the material discussed in a preceeding session on the nature of flooding and the role of ecological resources in flood hazard mitigation); the interpretation of this data (on a resource by resource basis) through the application of management principals to determine its limitations (a typical soils interpretation tables is an example of this); the mapping of each resource variable (on a common scale); and finally the overlaying of variables to form an environmental composite or suitability map. Several important questions and considerations about community mapping should be raised as part of your initial group presentation These questions include: 1. What is a suitable community base map? (scale and avai lability) 2. What environmental factors or values are of particular importance to the community (i.e., septic tank siting, hazard mitigation, etc.) What is the purpose or goal for the mapping project? 3. What technique, medium, or materials are most appropriate to use in representing this infor- mation? How much will it cost? For the remaining 50 minutes of the session participants will break into small groups (10-15 people) to "work" with a set of maps and map overlays. Your role should be to guide the discussion and to see that important features on the maps are discussed. Remember that your group will consist of local officials, citizen activists and business leaders. Since the group's familiarity with maps will vary greatly, it would be most appropriate to keep the discussion basic. Each group will be provided with two sets of maps. Each set will consist of: a U.S.G.S. quad sheet; 3 clear mylar overlays (flood hazards, soils, and land use); and a set of aerial photos, from two different years, showing development in the region. Acetate and markers will be provided to allow participants to color or highlight features or soil types on the maps. (For example, you might want to consider having participants group and color soil types based on their suitability for development.) During the session we would like you to move the group towards a suitability analysis, using these maps. Enclosed you will find blue line copies of these mylar overlays; key to the maps, and interpretation of soil types. Also atached you will find a list of "features of interest" and questions that you may wish to address during the session. At the Institute, participants will receive a handout which introduces: different types of maps; map scale; topographic lines; and a key of U.S.G.S. map symbols; and general detailed description of the soil survey; a more detailed interpretation of soil types appearing on the overlay, We would like to meet with you and the other workshop leaders at about 7:15 p.m. on Sunday to once more review the objectives of the session and to answer quetions. Attached is a list of the other workshop leaders including their addresses and phone numbers. You might want to contact other workshop leaders prior to the institute to exchange ideas. We will let you know the exact time and location of that meeting at registration. Once again, thank you for agreeing to serve as a workshop leader in this most important training institute. We look forward to meeting you on May 18. GEORGETOWN SOUTH, S.C. The Georgetown South quadranqle is the base map on which overlays depicting wetlands zoning, flood hazards and soil types will be placed. This quad sheet should be viewed as part of an entire coastal system. The quads to the south and east will be available at the institute and an effort to link the estuary system represented on the Georgetown South quad with the ocean, beach, barrier island, and dune systems on the other quads should be made. Features of Interest: - symbols of the USGS map; wetlands and marshes (fresh, brackish and salt); spoil islands; - port and shipping channels; - lack of contour, and the use of benchmarks to show elevations ; heavy and light industry and associated infra- structure; - jetties and their affects (land aggrading to the east ) ; and - estuary fed by a tidal river. Questions to consider: What type of development is occurring in the area (depicted in purple)? What are some of the possible effects of this development (much of the development has occurred within floodprone areas)? What role do the wetlands and marshes play in this region? What could be some of the potential effects if these resources are degraded? - How do the vegetated dunes and barrier islands (eastern quad sheet) influence the flood potential in the estuary? What are the major soil types? What are the natural limitations of thes.e soils? How does the soil survey help in identifying flood- prone areas? -5- BASE MAPS MAP SCALE 3 There are three categories of base maps: planimetric, topographic, and ortho- photo. A planimetric map show's roads, structures, political boundaries, and waterways, etc. in two dimensions. It illustrates hori- zontal positioning, not the height of hills or valleys. A photogrammetric planimetric map is a planimetric map which has been prepared from aerial photographs and has been corrected so that horizontal measure- ments taken from the map accurately reflect the distance on the ground within a certain tolerance. A topographic map shows the type of information illustrated on a planimetric map plus it has contour lines to show hills and valleys of the land, drainage patterns and the steepness of slopes. A photogrammetric topographic map is a topographic map which has been prepared from aerial photographs and has been corrected so that both horizontal and vertical measurements taken from the map accurately reflect the distances and elevations on the ground within a certain tolerance. An orthophoto map is a map composed of a corrected aerial photograph on which features such as road names, place names, property boundaries, and political boundaries have been added. All the features which appear on an aerial photograph also appear on an ortho- photo map. Map scale defines the relation- ship between the measurements of the features as shown on the map and as they exist on the Earth's surface. Scale is generally stated as a ratio or fraction — Gorn^m 1:24,000 scale, "3 1 inch = 2,000 .V'«\. ) * feet. ~\ *«, i ° Area shown, 1^ 1 square mile ?: 1:62,500 scale, 1 inch = about H# 1 mile. i#i Area shown, " -\ 6% square miles 1:250,000 scale, 1 inch = about 4 miles. Area shown, 107 square mile c 1. Barbara Maire et. a^, Wetlands and Floodplains on Paper (Lincoln, Mass Massachusetts Audubon Society, undated) 2. U.S.G.S., Topographic Maps (Washington, D.C.: Government Printing Office, 1972) -6~ •J o H Q5 o O 3S a, 2 O z o w Q 04 Q O O 32 2 g| Ml 2 sg w < _l Q. <4 c FLOODPLAIN DELINEATION ON AN ORTHOPHOTO MAP } D O TOPOGRAPHIC MAP SYMBOLS VARIATIONS WILL BE FOUND ON OLDER MAPS Primary highway, hard surface Secondary highway, hard surface Light-duty road, hard or improved surface Unimproved road Road under construction, alinement known Proposed road Dual highway, dividing strip 25 feet or less Dual highway, dividing strip exceeding 25 feet Trail Railroad: single track and multiple track Ra.lroads in juxtaposition. Narrow gage: single track and multiple track Railroad m street and carl me Bridge road and railroad Drawbridge: roadand railroad Footbridge Tunnel: road and railroad Overpass and underpass Small masonry or concrete dam Dam with lock Dam with road Canal with lock Buildings (dwelling, place of employment, etc.) School, church, and cemetery Buildings (barn, warehouse, etc.) Power transmission line with located metal tower Telephone line, pipeline, etc. (labeled as to type) Wells other than water (labeled as to type) Tanks: oil. water, etc. (labeled only if water) Located or landmark object; windmill Open pit, mine, or quarry; prospect Shaft and tunnel entrance .1 ■■■Hi Horizontal and vertical control station. Tablet, spirit level elevation 3MA5653 Other recoverable mark, spirit level elevation A 5455 Horizontal control station, tablet, vertical angle elevation vabmA95/9 Any recoverable mark, vertical angle or checked elevation A3~"-5 Vertical control station; tablet, spirit level elevation < 957 Other recoverable mark, spirit level elevation X954 Spot elevation x ?369 Water elevation 670 Boundaries. National State County, parish, municipio Civil township, precinct, town, barrio Incorporated city, village, town, hamlet Reservation, National or State Small park, cemetery, airport, etc. Land grant Township or range line. United States land survey. Township or range line, approximate location Section line, United States land survey Section line, approximate location Township line, not United States land survey . . Section line, not United States land survey Found corner: section and closing Boundary monument: land grant and other Fence or field line — + - -x — . Intermediate contour Depression contours . = Cut Levee with road Wash Tailings pond Shifting sand or dune: I ntricate surface Sand area Gravel beach Perennial streams . Elevated aqueduct Water well and spring Small rapids Large rapids . Intermittent lake Foreshore flat Sounding, depth curve Exposed wreck Intermittent streams Aqueduct tunne Glacier Small falls Large falls Dry lake bed Rock or coral reef . Piling or dolphin Sunken wreck Rock, bare or awash, dangerous to navigation Marsh (swamp) Wooded marsh Woods or brushwood Vineyard Land subject to controlled inundation Submerged marsh J Mangrc igrove I Orchard _ ! Scrub Urban area «- , — Z< t I I I I I I I I I -9- ) MILE SCALE 1:62 500 UNITED STATES DEPARTMENT OF THE INTERIOR GEOLOGICAL SURVEY TOPOGRAPHIC MAP INFORMATION AND SYMBOLS MARCH 1978 ) QUADRANGLE MAPS AND SERIES Quadrangle maps cover four-sided areas bounded by parallels of latitude and meridians of longitude. Quadrangle size is given in minutes or degrees. Map series are groups of maps that conform to established specifications for size, scale, content, and other elements. Map scale is the relationship between distance on a map and the corresponding distance on the ground Map scale is expressed as a numerical ratio and shown graphically by bar scales marked in feet, miles, and kilometers. NATIONAL TOPOGRAPHIC MAPS Series Scale 1 inch represents 1 centimeter represents Standard quadrangle size (latitude-longitude) Quadrangle area (square miles) 1 1 1 1 1 1 1 1 1 1 24,000 25.000 20.000 62.500 63,360 100.000 250.000 1 .000.000 250.000 500.000 2,000 feet about 2,083 feet about 1 ,667 feet nearly 1 mile 1 mile nearly 1 .6 miles nearly 4 miles nearly 16 miles nearly 4 miles nearly 8 miles 240 meters 250 meters 200 meters 625 meters nearly 634 meters 1 kilometer 2 5 kilometers 10 kilometers 2.5 kilometers 5 kilometers 716X7VS min. 7V4X15 min. TfiX-VA mm I5X 15 mm 15X20 to 36 min 30X60 min \°y-T or 3° 4°X6° l°X3° t o 15° 2°x 7'/;° 49 to 70 7'/2 x |5- minute Puerto Rico 7V2-mmute 1 5- minute Alaska 1:63.360 98 to 140 71 197 to 282 207 to 28 1 1568 to 2240 U. S. 1.250,000 4 580 to 8 669 U. S 1:1.000.000 73,734 to 102 759 Antarctica 1:250.000 4 089 to 8 336 Antarctica 1 :500.000 28.174 to 30,462 CONTOUR LINES SHOW LAND SHAPES AND ELEVATION The shape of the land, portrayed by contours, is the distinctive characteristic of topographic maps. Contours are imaginary lines following the ground surface at a constant elevation above or below sea level. Contour interval is the elevation difference represented by adjacent contour lines on maps. Contour intervals depend on ground slope and map scale Small contour intervals are used for flat areas; larger intervals are used for mountainous terrain. Supplementary dotted contours, at less than the regular interval, are used in selected flat areas. Index contours are heavier than others and most have elevation figures. Relief shading, an overprint giving a three-dimensional impression, is used on selected maps. Orthophotomaps, which depict terrain and other map features by color-enhanced photographic images, are available for selected areas. COLORS DISTINGUISH KINDS OF MAP FEATURES Black is used for manmade or cultural features, such as roads, buildings, names, and boundaries. Blue is used for water or hydrographic features, such as lakes, rivers, canals, glaciers, and swamps. Brown is used for relief or hypsographic features — land shapes portrayed by contour lines. Green is used for woodland cover, with patterns to show scrub, vineyards, or orchards. Red emphasizes important roads and is used to show public land subdivision lines, land grants, and fence and field lines. Red tint indicates urban areas, in which only landmark buildings are shown. Purple is used to show office revision from aerial photographs The changes are not field checked. INDEXES SHOW PUBLISHED TOPOGRAPHIC MAPS Indexes for each State, Puerto Rico and the Virgin Islands of the United States, Guam, American Samoa, and Antarctica show available published maps. Index maps show quadrangle location, name, and survey date. Listed also are special maps and sheets, with prices, map dealers, Federal distribution centers, and map reference libraries, and instructions for ordering maps. Indexes and a booklet describing topographic maps are available free on request. HOW MAPS CAN BE OBTAINED Mail orders for maps of areas east of the Mississippi River, including Minnesota. Puerto Rico, the Virgin Islands of the United States, and Antarctica should be addressed to the Branch of Distribution, U. S. Geological Survey, 1200 South Eads Street, Arlington, Virginia 22202. Maps of areas west of the Mississippi River, including Alaska, Hawaii, Louisiana, American Samoa, and Guam should be ordered from the Branch of Distribution. U. S. Geological Survey, Box 25286, Federal Center, Denver, Colorado 80225. A single order combining both eastern and western maps may be placed with either office. Residents of Alaska may order Alaska maps or an index for Alaska from the Distribution Section, U.S. Geological Survey. Federal Building-Box 12, 101 Twelfth Avenue. Fairbanks, Alaska 99701 . Order by map name. State, and series. On an order amounting to $300 or more at the list price, a 30-percent discount is allowed. No other discount is applicable. Prepayment is required and must accompany each order. Payment may be made by money order or check payable to the U.S. Geological Survey. Your ZIP code is required. Sales counters are maintained in the following U. S. Geological Survey offices, where maps of the area may be purchased in person: 1200 South Eads Street, Arlington, Va.; Room 1028, General Services Administration Building, 19th & F Streets NW, Washington, D. C; 1400 Independence Road, Rolla, Mo.; 345 Middlefield Road, Menlo Park, Calif.; Room 7638. Federal Building, 300 North Los Angeles Street, Los Angeles. Calif.; Room 504. Custom House, 555 Battery Street. San Francisco, Calif.; Building 41, Federal Center, Denver, Colo.; Room 1012. Federal Building, 1961 Stout Street, Denver Colo.; Room IC45, Federal Building, 1 100 Commerce Street, Dallas, Texas; Room 8105. Federal Building. 125 South State Street, Salt Lake City, Utah; Room 1C402, National Center, 12201 Sunrise Valley Drive, Reston, Va.; Room 678. U. S. Court House, West 920 Riverside Avenue. Spokane, Wash.; Room 108, Skyline Building. 508 Second Avenue. Anchorage, Alaska; and Federal Building, 101 Twelfth Avenue, Fairbanks. Alaska. Commercial dealers sell U. S. Geological Survey maps at their own prices. Names and addresses of dealers are listed in each State index. . _. L ; 133d 000 « I " ' T" 00S39I 31V0S lOOJ 000 SI 000 01 0009 1 1 1 1 1 1 1 1 1 -10- CONTOUR LINES A contour line is an imaginery line drawn on the ground which connects points of the same altitude or elevation. The contour interval is the vertical distance (difference in elevation! separating contour lines. While contour intervals between maps may vary, on any single map the interval is constant. The horizontal spacing of the contour lines, therefore, varies with land slope. In general, the closer the contour lines the steeper the slope. Wide spacing between lines indicates more gentle slopes. When contour lines cross streams the contour is bent into a V, the V points in the upstream direction. COMPARISON OF CONTOUR INTERVALS 10" CONTOUR INTERVAL. opes 2' CONTOUR INTERVAL. 1. Barbara Maire et. al, Wetlands and Floodplains on Paper (Lincoln, Mass.: Massachusetts Audubon Society, undated) J -11- THE SOIL SURVEY Man is dependent on soils. Soils provide the habitat for plants and crops; the foundations for buildings and roads; and receptacles for domestic, municipal, industrial and animal wastes. Soil management should be a fundamental planning concern and the soil survey is an essential planning tool. The soil survey, conducted by the Soil Conservation Service, provides the basic information needed for planning including: a map depicting different soil types and a description of the properties and limitations of these soils. Of particular interest for land use planning are the soil's "engineering properties" and "engineering interpreta- tions." These interpretations indicate the suitability of areas for different uses. For example, the suitability of areas for homebuilding sites involves an evaluation of the flood hazards, height of the water table, slope of the land, shrink-swell potential of the soil and depth of the soil to hard rock.l The suitability of a site for septic tanks is rated according to the permeability of the soil (the ease with which water penetrates the soil) , the land slope, filtering capacity, level of the water table, and potential for flooding. 2 Additional suitability interpretations include use for highways, ponds or reservoirs, and recreation. Soils maps, themselves, are very useful for floodplain delineation. Soils which are deposited by running water (called alluvial soils) or soils which are frequently covered by water differ in texture, color, or structure from those which develop under drier conditions. Such soils will, therefore, have classifications different from non-flood-prone soils. Attached is a chart depicting the soil suitability interpretations and a brief description of the major soil types found on the map sheet to be used in this exercise. Those soils which have developed under wet conditions or were deposited by runninq water can be identified from these descriptions. By drawing boundaries around these soil tvpes it is possible to make a rough delineation of the flood hazard area. 1. U.S. Department of Agriculture, Soil Conservation Service, Soil Survey For Wake County, North Carolina . (Washi ng ton , D.C.: GPO, 1970) 2. Ibid. -12- KEY Z ONING : "45 Residential 46 Commercial 47 Heavy Industrial 48 Light Industry 49 Forest Agriculture 50 Conservation/Preservation 51 Historic Building District 52 Mobile Home 53 Destination Park 54 Planned Development 71 Port/GAPC 99 Unclassified and/or Water DEVELOPMENT. 1 TO' Residential 120 Retail/Wholesale 130 Industrial 140 Extractive 150 Transportation 160 Institutional 190 Open and Other Urban 200 Agriculture SOILS: 10 Leon 12 Eunola 13 Bladen 18 Cape Fear 20 Centenary 27 Rutlege 28 Echaw 34 Johnston 50 Lynn-Haven 54 Chipley 55 Witherbee 57 Grifton (Ogeechee) 59 Wahee 61 Yemassee 251 Wakulla 602 Lakeland (Wando) 500 Open Water 99 Unclassified WETLANDS: Forest Logged Area/ Brush Open Water Impoundments Forested Wetlands Unforested Wetlands Sale Marsh Brackish Water Marsh Fresh Water Marsh Abandoned Rice 631 Low Salt Marsh 632 High Sale Marsh 633 Brackish Marsh 634 Freshwater Marsh 720 Beach 400 440 500 510 610 620 621 623 624 630 -13- SOILS: GEORGETOWN SOUTH, S.C. Leon (10) Poorly drained sandy soils with slopes less than 5%. Eulonia (12) Deep moderately well drained soils on the lower coastal plain. Slopes less than 2%. Bladen (13) Poorly drained soils occurring on broad nearly level flats of the coastal plains. Cape Fear (18) Nearly level, very poorly drained soils on stream terraces and low uplands of the coastal plain. Flooding of brief duration is frequent from January to May. Centenary (20) Sandy, moderately well drained, rapidly permeable soils of the coastal plain. Slopes are less than 2%. Rutlege (27) Deep, very poorly drained soils of upland flats and in depressions Slopes are less than 2%. Flooding of brief duration is frequent. Echaw (28) Moderately well drained, permeable soils on level eroded ridges and flats of the lower coastal plain. Johnston (34) Very poorly drained soils on nearly level flood plains of the coastal plain. Flooding, sometimes of long duration, is common. Lynn Haven (50) Poorly drained sandy soils with slopes of less than 2%. Witherbee (55) Sandy, somewhat poorly drained, rapidly permeable soils on nearly level broad ridges and flats of the lower coastal plain. Slopes of less than 2%. Grifton (57) Poorly drained soils on the middle and lower coastal plain uplands and stream terraces. Slopes are generallv less than 2%. Wahee (59) Poorly drained, slowly permeable, soils of the coastal plains. Slope range to 4%. Flooding, of brief duration, is common on some of these soils. -14- Yemassee (61) Poorly drained, nearly level soils on the lower coastal plain. Some rare flooding. Wakulla (251) Nearly level to sloping, well drained soils on upland and stream terraces of the coastal plain. Slopes range from 0-10%. Lakeland (602) Very well drained nearly level to steep soils on coastal plain uplands. Slopes range from to 30%. •15- X fr" Cl W 50 O o 9 n r »-. 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H l"l H H CD ID CD ID ID 5 H ft ft « « * f O O CD CD CD en O ft 3 rt 3 rt 3 CO CO ID ID ID 0) 0) CO CO CO 3 3 CO CO CO a a *< << CM C < B X n o c z H K CO o G -3 X n > 50 O F M z > APPENDIX B MAPPING EXERCISE MATERIALS (RIVERINE) Appendix B Riverine SAMPLE BRIEFING MEMORANDUM To: Workshop Leaders "Identifying Natural Resources and Flood Hazard Data Sources For Decision-making" — "Mapping Exercise" Thank you for agreeing to serve as a workshop leader for the Sunday, May 18, evening session (7:45-9:15 a.m.) during the Region V Riverine Flood Hazard Management Training Institute. The workshops you will be leading represent an important element of the training program. The purpose of this session is two fold: (1) to describe the special ecological charac- teristics and hazard mitigation functions of riverine eco- systems, (2) to familiarize participants with several types of maps commonly available to communities and to increase participant appreciation for the use of maps as essential flood hazard mitigation planning tools. The session will be divided into two parts. During the first hour, group discussion will focus on riverine ecosystems and the special role natural resources can play in hazard mitigation. You should begin the session by giving a brief 20-25 minute presentation usng slides or any other visuals you may find useful in your talk. You should highlight the causes of flooding in a particular geographic area and describe the special qualities of typical riverine ecosystems such as river corridors, wetlands and transition zones. You will also want to point out what role these natural resources can play in reducing flood hazards. Following your presentation, you should answer questions from the audience. At approximately 10 minutes before the first hour is up you should close discussion and give participants a brief break but encourage them to stay in the room. During this break you should distribute the mapping materials on the tables in prepara- tion for the next portion of the session. During the second part of this session you will be leading the group in mapping exercise on land use suitability. You should begin this portion of the session with a very brief (5-10 minute) presentation on the principles of land use sui- tability analysis. A land suitability analysis is a process of data gathering, interpretation, and representation which results in a land clasif ication scheme reflecting the natural suitability or carry capacity of the land. The analysis is a stepped process involving: the identification of environmental considerations or elements (this identification could be based on the material discussed in a preceeding session on the nature of flooding and the role of ecological resources in flood hazard mitigation); the interpretation of this data (on a resource by resource basis) through the application of management principals to determine its limitations (a typical soils interpretation tables is an example of this); the mapping of each resource variable (on a common scale); and finally the overlaying of variables to form an environmental composite or suitability map . Several important questions and considerations about community mapping should be raised as part of your initial group presentation These questions include: 1. What is a suitable community base map? (scale and availability) 2. What environmental factors or values are of particular importance to the community (i.e., septic tank siting, hazard mitigation, etc.) What is the purpose or goal for the mapping project? 3. What technique, medium, or materials are most appropriate to use in representing this infor- mation? How much will it cost? For the remaining 50 minutes of the session participants will break into small groups (10-15 people) to "work" with a set of maps and map overlays. Your role should be to guide the discussion and to see that important features on the maps are discussed. Remember that your group will consist of local officials, citizen activists and business leaders. Since the group's familiarity with maps will vary greatly, it would be most appropriate to keep the discussion basic. Each group will be provided with two sets of maps. Each set will consist of: a U.S.G.S. quad sheet; 3 clear mylar overlays (flood hazards, soils, and land use); and a set of aerial photos, from two different years, showing development in the region. Acetate and markers will be provided to allow participants to color or highlight features or soil types on the maps. (For example, you might want to consider having participants group and color soi^ types based on their suitability for development.) During the session we would like you to move the group towards a suitability analysis, using these maps. Enclosed you will find blue line copies of these mylar overlays; key to the maps, and interpretation of soil types. Also atached you will find a list of "features of interest" and questions that you may wish to address during the session. At the Institute, participants will receive a handout which introduces: different types of maps; map scale; topographic lines; and a key of U.S.G.S. map symbols; and general detailed description of the soil survey; a more detailed interpretation of soil types appearing on the overlay, We would like to meet with you and the other workshop leaders at about 7:15 p.m. on Sunday to once more review the objectives of the session and to answer quetions. Attached is a list of the other workshop leaders including their addresses and phone numbers. You might want to contact other workshop leaders prior to the institute to exchange ideas. We will let you know the exact time and location of that meeting at registration. Once again, thank you for agreeing to serve as a workshop leader in this most important training institute. We look forward to meeting you on May 18. WAKE FOREST, N.C. The land within the Wake Forest Quandrangle is drained by a network of small streams and the larger Neuse River. Most of the smaller streams are characterized by V-shaped valleys with narrow floodplains. The Neuse River has a more U-shaped valley and a wider floodplain than the smaller streams. All the streams in the area have relatively steep gradients and steep valley walls. Even the Neuse River has some rapids at the town of Falls where the river drops 10 feet over a 1000 foot distance. Due to the significant relief, including slopes up to 45% , the natural surface water drainage is rapid and the runoff potential is high. Natural water retention areas, such as wetlands, are uncommon although numerous manmade (farm) ponds now serve as runoff retention areas. Much of the land is currently forested by second growth species such as loblolly and shortleaf pine, althogh some areas remain in farming. Urban development is beginning to occur within the Quad, particularly around the City of Raleigh. For the large part, to date, the floodplain of the Neuse River has been left undeveloped, although some encroachment is currently occurring. Some clearing of the floodplain forest has occurred around Falls and a new pumping station has been built in the floodplain where U.S. Highway 64 crosses the river. All along the river consid- erable fill has been used to elevate roadbeds to allow for bridge construction. Constriction of flood flows is a possible result of this type of filling. WAKE FOREST, N.C. Features of Interest: - Steep slopes - Oxbow with wetland - falls reservoirs - intermittent streams - location and design of subdivisions with respect to topography. Questions of Interest: - What type of river valley is this (U-, V-, r broad valley? What does this imply about the vegetation on and width of the floodplain? - What are the major soil types? What are the natural limitations of these soils? - How does the soil survey help in identifying flood- prone areas? What limitations are imposed by steep slopes? (Discuss in association with soils) - What is an intermittent stream? How is it depicted on a topo map? - Using contour lines, how can you determine the direction of stream flow? The steepness of the gradient? - Where are "stream" valleys (on the map) which are not distinguished because of their small size? -6- BASE MAPS MAP SCALE There are three categories of base maps: planimetric, topographic, and ortho- photo. A planimetric map shoves roads, structures, political boundaries, and waterways, etc. in two dimensions. It illustrates hori- zontal positioning, not the height of hills or valleys. A photogrammetric planimetric map is a planimetric map which has been prepared from aerial photographs and has been corrected so that horizontal measure- ments taken from the map accurately reflect the distance on the ground within a certain tolerance. A topographic map shows the type of information illustrated on a planimetric map plus it has contour lines to show hills and valleys of the land, drainage patterns and the steepness of slopes. A photogrammetric topographic map is a topographic map which has been prepared from aerial photographs and has been corrected so that both horizontal and vertical measurements taken from the map accurately reflect the distances and elevations on the ground within a certain tolerance. An orthophoto map is a map composed of a corrected aerial photograph on which features such as road names, place names, property boundaries, and political boundaries have been added. All the features which appear on an aerial photograph also appear on an ortho- photo map. Map scale defines the relation- ship between the measurements of the features as shown on the map and as they exist on the Earth's surface. Scale is generally stated as a ratio or fraction — 1:24,000 scale, 1 inch = 2,000 feet. Area shown, 1 square mile 1:62,500 scale, V 1 inch = about &*k 1 mile. <& Area shown, " 6% square miles 1:250,000 scale, 1 inch = about 4 miles. Area shown, 107 square mile; Barbara Maire et. al, Wetlands and Floodplains on Paper (Lincoln, Mass Massachusetts Audubon Society, undated) 2. U.S.G.S., Topographic Maps (Washington, D.C.: Government Printing Office, 1972) 2 O z o u Q 04 Q ^ fe < _l 5 2 5 wis « Si 1; o « O X z o o o 52 2 ••- ? o ai I o. u! ■ 3 «? 5f £.1 I? B«3 His Mil I" S i •j FLOODPLAIN DELINEATION ON AN ORTHOPHOTO MAP t> -9- TOPOGRAPHIC MAP SYMBOLS VARIATIONS WILL BE FOUND ON OLDER MAPS Primary highway, hard surface Secondary highway, hard surface Light-duty road, hard or improved surface Unimproved road Road under construction, almement known . , Proposed road Dual highway dividing strip 25 feet or less Dual highway, dividing strip exceeding 25 feet Trail I) Railroad, single track and multiple track Railroads m juxtaposition Narrow gage: single track and multiple track Railroad in street and carline Bridge: road and railroad Drawbridge: road and railroad Footbridge, Tunnel: road and railroad Overpass and underpass . Small masonry or concrete dam Dam with lock , . Dam with road Canal with lock Buildings (dwelling, place of employment, el School, church, and cemetery Buildings (barn, warehouse, etc.) • . Power transmission line with located metal tower Telephone line, pipeline, etc. (labeled as to type) Wells other than water (labeled as to type) Tanks: oil, water, etc. (labeled only if water) Located or landmark obiect: windmill Open pit, mine, or quarry: prospect Shaft and tunnel entrance -t— ! ~^ -0- ,1 . •• ) Horizontal and vertical control station: Tablet, spirit level elevation BMA5653 Other recoverable mark, spirit level elevation & Horizontal control station: tablet, vertical angle elevation VABMA9S/9 Any recoverable mark, vertical angle or checked elevation &37T5 Vertical control station: tablet, spirit level elevation x 957 Other recoverable mark, spirit level elevation , x 954 Spot elevation x 7369 Water elevation .......... 670 Boundaries. National State County, parish, munictpio ...... Civil township, precinct, town, barrio Incorporated city, village, town, hamlet Reservation, National or State Small park, cemetery, airport, etc. Land grant Township or range line, United States land survey Township or range line, approximate location Section line, United States land survey Section line, approximate location Township line, not United States land survey Section line, not United States land survey Found corner: section and closing Boundary monument: land grant and other Fence or field line ......... I ndex contour Supplementary contour Fill . Levee Mine dump Tailings .1 Shifting sand ordunesL Sand area Perennial streams Elevated aqueduct Water well and spring. Small rapids Large rapids Intermittent lake . Foreshore flat Sounding, depth curve Exposed wreck . Intermediate contour Depression contours -.-Cut Levee with road Wash . J Tailings pond Intricate surface Gravel beach . . Intermittent streams Aqueduct tunnel . Glacier Small falls Large falls Dry lake bed Rock or coral reef Piling or dolphin Sunken wreck Rock, bare or awash; dangerous to navigation Marsh (swamp) Wooded marsh Woods or brushwood Vineyard Land subiect to controlled inundation Submerged marsh Mangrove Orchard Scrub Urban area I I I I I I I I I -10- MILE SCALE 1:62 500 UNITED STATES DEPARTMENT OF THE INTERIOR GEOLOGICAL SURVEY TOPOGRAPHIC MAP INFORMATION AND SYMBOLS MARCH 1978 QUADRANGLE MAPS AND SERIES Quadrangle maps cover four-sided areas bounded by parallels of latitude and meridians of longitude. Quadrangle size is given in minutes or degrees. Map series are groups of maps that conform to established specifications for size, scale, content, and other elements. Map scale is the relationship between distance on a map and the corresponding distance on the ground Map scale is expressed as a numerical ratio and shown graphically by bar scales marked in feet, miles, and kilometers. NATIONAL TOPOGRAPHIC MAPS Series Scale 1 inch represents 1 centimeter represents Standard quadrangle size (latitude-longitude) Quadrangle area (square miles) 7'/2-minute 7'/iX 15-minute Puerto Rico 7Vi-minute 15-minute Alaska 1:63.360 1 1 1 1 1 1 1 1 1 1 24.000 25,000 20,000 62.500 63,360 100,000 250,000 1 ,000,000 250,000 500.000 2,000 feet about 2,083 feet about 1 ,667 feet nearly 1 mile 1 mile nearly 1.6 miles nearly 4 miles nearly 16 miles nearly 4 miles nearly 8 miles 240 meters 250 meters 200 meters 625 meters nearly 634 meters 1 kilometer 2,5 kilometers 10 kilometers 2.5 kilometers 5 kilometers 7ViX7'/4 min. 7'/ixi5 m in. 7 l /2X7i/ 2 min. 15X 15 min. 15X20 to 36 min 30X 60 min. l°x 2° or 3° 4°X6° 1°X3° to 15° 2°x 7'/4° 49 to 70 98 to 140 71 197 to 282 207 to 281 1568 to 2240 4,580 to 8.669 73,734 to 102,759 4.089 to 8.336 28,174 to 30.462 U. S. 1:250,000 U S. 1:1,000,000 Antarctica 1:250,000 . . Antarctica 1:500.000 CONTOUR LINES SHOW LAND SHAPES AND ELEVATION The shape of the land, portrayed by contours, is the distinctive characteristic of topographic maps. Contours are imaginary lines following the ground surface at a constant elevation above or below sea level. Contour interval is the elevation difference represented by adjacent contour lines on maps. Contour intervals depend on ground slope and map scale Small contour intervals are used for flat areas; larger intervals are used for mountainous terrain. Supplementary dotted contours, at less than the regular interval, are used in selected flat areas. Index contours are heavier than others and most have elevation figures. Relief shading, an overprint giving a three-dimensional impression, is used on selected maps. Orthophotomaps, which depict terrain and other map features by color-enhanced photographic images, are available for selected areas. COLORS DISTINGUISH KINDS OF MAP FEATURES Black is used for manmade or cultural features, such as roads, buildings, names, and boundaries. Blue is used for water or hydrographic features, such as lakes, rivers, canals, glaciers, and swamps. Brown is used for relief or hypsographic features — land shapes portrayed by contour lines. Green is used for woodland cover, with patterns to show scrub, vineyards, or orchards. Red emphasizes important roads and is used to show public land subdivision lines, land grants, and fence and field lines. Red tint indicates urban areas, in which only landmark buildings are shown Purple is used to show office revision from aerial photographs The changes are not field checked. INDEXES SHOW PUBLISHED TOPOGRAPHIC MAPS Indexes for each State, Puerto Rico and the Virgin Islands of the United States, Guam, American Samoa, and Antarctica show available published maps. Index maps show quadrangle location, name, and survey date. Listed also are special maps and sheets, with prices, map dealers. Federal distribution centers, and map reference libraries, and instructions for ordering maps. Indexes and a booklet describing topographic maps are available free on request. HOW MAPS CAN BE OBTAINED Mail orders for maps of areas east of the Mississippi River, including Minnesota, Puerto Rico, the Virgin Islands of the United States, and Antarctica should be addressed to the Branch of Distribution, U. S. Geological Survey, 1200 South Eads Street, Arlington, Virginia 22202. Maps of areas west of the Mississippi River, including Alaska, Hawaii, Louisiana, American Samoa, and Guam should be ordered from the Branch of Distribution, U. S. Geological Survey, Box 25286, Federal Center, Denver, Colorado 80225. A single order combining both eastern and western maps may be placed with either office. Residents of Alaska may order Alaska maps or an index for Alaska from the Distribution Section, U. S. Geological Survey, Federal Building-Box 12, 101 Twelfth Avenue, Fairbanks, Alaska 99701. Order by map name, State, and series. On an order amounting to $300 or more at the list price, a 30-percent discount is allowed. No other discount is applicable. Prepayment is required and must accompany each order. Payment may be made by money order or check payable to the U. S. Geological Survey. Your ZIP code is required. Sales counters are maintained in the following U. S. Geological Survey offices, where maps of the area may be purchased in person: 1200 South Eads Street, Arlington, Va.; Room 1028, General Services Administration Building, 19th & F Streets NW, Washington, D. C; 1400 Independence Road, Rolla, Mo.; 345 Middlefield Road, Menlo Park, Calif.; Room 7638, Federal Building, 300 North Los Angeles Street, Los Angeles, Calif.; Room 504, Custom House, 555 Battery Street, San Francisco, Calif.; Building 41, Federal Center, Denver, Colo.; Room 1012, Federal Building, 1961 Stout Street, Denver Colo.; Room 1C45, Federal Building, 1100 Commerce Street, Dallas, Texas; Room 8105, Federal Building, 125 South State Street, Salt Lake City, Utah; Room 1C402, National Center, 12201 Sunrise Valley Drive, Reston, Va.; Room 678, U. S. Court House, West 920 Riverside Avenue, Spokane, Wash.; Room 108, Skyline Building, 508 Second Avenue, Anchorage, Alaska; and Federal Building, 101 Twelfth Avenue, Fairbanks, Alaska. Commercial dealers sell U. S. Geological Survey maps at their own prices. Names and addresses of dealers are listed in each ( State index. IIOR— GEOLOGICAL WESTON VlRGlf 009 29: X 3"1VDS XOOd 000 SI 00001 000s 1 1 1 1 1 1 1 1 1 V -11- V CONTOUR LINES A contour line is an imaginery line drawn on the ground which connects points of the same altitude or elevation. The contour interval is the vertical distance (difference in elevation! separating contour lines. While contour intervals between maps may vary, on any single map the interval is constant. The horizontal spacing of the contour lines, therefore, varies with land slope. In general, the closer the contour lines the steeper the slope. Wide spacing between lines indicates more gentle slopes. When contour lines cross streams the contour is bent into a V, the V points in the upstream direction. COMPARISON OF CONTOUR INTERVALS V 10' CONTOUR INTERVAL. t) opes 2' CONTOUR INTERVAL. 1. Barbara Maire et. al, Wetlands and Floodplains on Paper (Lincoln, Mass.: Massachusetts Audubon Society, undated) -12- c THE SOIL SURVEY Man is dependent on soils. Soils provide the habitat for plants and crops; the foundations for buildings and roads; and receptacles for domestic, municipal, industrial and animal wastes. Soil management should be a fundamental planning concern and the soil survey is an essential planning tool. The soil survey, conducted by the Soil Conservation Service, provides the basic information needed for planning including: a map depicting different soil types and a description of the properties and limitations of these soils. Of particular interest for land use planning are the soil's "engineering properties" and "engineering interpreta- tions." These interpretations indicate the suitability of areas for different uses. For example, the suitability of areas for homebuilding sites involves an evaluation of the flood hazards, height of the water table, slope of the land, shrink-swell potential of the soil and depth of the soil to hard rock. 1 The suitability of a site for septic tanks is rated according to the permeability of the soil (the ease with which water penetrates the soil) , the land slope, filtering capacity, level of the water table, and potential for flooding. 2 Additional suitability interpretations include use for highways, ponds or reservoirs, and recreation. Soils maps, themselves, are very useful for floodplain delineation. Soils which are deposited by running water (called alluvial soils) or soils which are frequently covered by water differ in texture, color, or structure from those which develop under drier conditions. Such soils will, therefore, have classifications different from non-flood-prone soils. Attached is a chart depicting the soil suitability interpretations and a brief description of the major soil types found on the map sheet to be used in this exercise. Those soils which have developed under wet conditions or were deposited by running water can be identified from these descriptions . By drawing boundaries around these soil tvpes it is possible to make a rough delineation of the flood hazard area. 1. U.S. Department of Agriculture, Soil Conservation Service, Soil Survey For Wake County, North Carolina . (V7ashington, D.C.: GPO, 1970) {m 2. Ibid. -13- SOIL ASSOCIATION Creedmore-White Store Association Gently sloping to hilly, deep and moderately deep, moderately well drained soild that have a very firm clayey subsoil; derived from sandstone, shale, and mudstone. Mayodan-Granville-Creedmoor Association Gently sloping to moderately steep, deep or moderately deep, well drained and moderately well drained soils that have a subsoil of friable sandy clay loam to very firm clay; derived from sandstone, shale, and mudstone. Herndon-Georgeville Association Gently sloping to moderately steep, deep, well-drained soils that have a subsoil of friable silty clay loam to clay; derived from phyllite (Carolina slates) . Appling-Durham Association Gently sloping to sloping, deep, well-drained soils that have a subsoil of friable sandy clay loam to firm clay; derived mostly from granite, gneiss, and schist. Cecil-Appling Association Gently sloping to steep, deep, well-drained soils that have a subsoil of red, friable to firm clay loam to clay; derived mostly from gneiss and schist. Cecil Association Gently sloping to steep, deep, well-drained soils that have a subsoil of firm red clay; derived mostly from gneiss and schist. Cecil-Madison Association Gently sloping to steep, deep, well-drained soils that have a subsoil of red, friable to firm clay loam to clay; derived mostly from gneiss and schist. Appling Association Gently sloping to moderately steep, deep, well-drained soils that have a subsoil of firm clay loam to clay; derived mostly from granite, gneiss, and schist. Wagram-Norfolk Association Nearly level to sloping, very deep, somewhat excessively drained and well drained soils that have a subsoil of friable sandy loam to sandy clay loam; formed in Coastal Plain sediments. Appling-Louisburg-Wedowee Association Gently sloping to steep, deep and moderately deep, well drained and somewhat excessively drained soild that have a sub- soil of very friable coarse sandy loam to firm clay; derived mostly from granite, gneiss, and schist. -14- KEY Map symbol AfA AgB AgB2 AgC AgC2 ApB ApB2 ApC ApC2 ApD AsB AsB2 AsC AsC2 Au a/) Bu CeB CeB2 CeC CeC2 CeD CeF CgB CgB2 CgC CgC2 C1B3 C1C3 C1E3 Cm Cn Co Cp CrB CrB2 CrC Mapping unit Altavista fine Bandy loam, to k percent slopes- Appling gravelly sandy loam, 2 to 6 percent slopes Appling gravelly sandy loam. 2 to b uercent slopes, eroded Appling gravelly sandy loam, 6 to 10 percent slopes Appling gravelly sandy loam, 6 to 10 percent slopes, eroded to 6 percent slopes to 6 percent slopes, Appling sandy loam, 2 Appling sandy loam, 2 eroded Appling sandy loam, 6 Appling sandy loam, 6 eroded Appling sandy loam, 10 to 15 percent slopes Appling fine sandy loam, 2 to 6 percent slopes Appling fine sandy loam, 2 to 6 percent slopes, eroded Appling fine sandy loam, 6 Appling fine sandy loam, 6 eroded Augusta fine sandy loam Borrow area Buncombe soils Cecil sandy loam, Cecil sandy loam, Cecil sandy loam, Cecil sandy loam, Cecil sandy loam, to 10 percent slopes to 10 percent slopes, to 10 percent slopes to 10 percent slopes, to 6 to 6 to 6 percent slopes, to 10 percent to 10 percent percent slopes percent slopes, eroded 6 to 10 percent slopes 6 to 10 percent slopes, eroded 10 to 15 percent slopes Cecil sandy loam, 15 to ii5 percent slopes Cecil gravelly sandy loam, 2 to 6 percent slopes- Cecil gravelly sandy loam, 2 eroded Cecil gravelly sandy loam, 6 slopes Cecil gravelly sandy loam, 6 slopes, eroded Cecil clay loam, 2 to 6 percent slopes, severely eroded Cecil 'clay loam, 6 to 10 percent slopes, severely eroded Cecil clay loam, 10 to 20 percent slopes, severely eroded Chewacla soils Colfax sandy loam Congaree fine sandy loam Congaree silt loam 2 to 6 percent slopes 2 to 6 percent slopes, Creedmoor sandy loam, Creedmoor sandy loam, eroded Creedmoor sandy loam, 6 to 10 percent slopes Map symbol CrC2 CrE CtB etc DuB DuB2 DuC DuC2 EnB EnB2 EnC EnC2 EnD2 FaB FaB2 FaC2 GeB GeB2 GeC GeC2 GeD2 Go GrB GrB2 GrC GrC2 GrD Gu HeB HeB2 HeC HeC2 HeD HrB HrB2 HrC HrC2 HrD2 HrE LdB2 LdC2 LdD2 LoB LoC Mapping unit Creedmoor sandy loam, 6 to 10 percent slopes, eroded Creedmoor sandy loam, 10 to 20 percent slopes Creedmoor silt loam, 2 to 6 percent slopes 6 to 10 percent slopes to 6 percent slopes to 6 percent slopes, eroded to 10 percent slopes to 10 percent slopes, 6 percent slopes 6 percent slopes, Creedmoor silt loam, Durham loamy sand, 2 Durham loamy sand, Durham loamy sand, Durham loamy sand , eroded Enon fine sandy loam, Enon fine sandy loam, eroded Enon fine sandy loam, Enon fine sandy loam, eroded Enon fine sandy loam, 10 to 15 percent slopes, eroded Faceville sandy loam, Faceville sandy loam, eroded Faceville 6andy loam, 6 to 10 percent slopes, eroded Georgeville silt loam, 2 to 6 percent slopes Georgeville silt loam, 2 to 6 percent slopes, eroded to 10 percent slopes to 10 percent slopes, to 6 percent slopes to 6 percent slopes, 6 to 10 percent slopes 6 to 10 percent slopes, Georgeville silt loam, Georgeville silt loam, eroded Georgeville silt loam, 10 to 15 percent slopes, eroded Goldsboro sandy loam Granville sandy loam, 2 to 6 percent slopes Granville sandy loam, 2 to 6 percent slopes, eroded Granville sandy loam, 6 Granville sandy loam, 6 eroded Granville sandy loam, Gullied land Helena sandy loam, 2 Helena sandy loam, 2 eroded Helena sandy loam, 6 Helena sandy loam, 6 eroded Helena sandy loam, 10 to 15 percent slopes Herridon silt loam, 2 to 6 percent slopes to 10 percent slopes to 10 percent slopes, 10 to 15 percent slopes to 6 percent slopes to 6 percent slopes, to 10 percent slopes to 10 percent slopes, 4 < to 6 percent slopes, eroded to 10 percent slopes to 10 percent slopes, Herndon silt loam, 2 Herndon silt loam, 6 Herndon silt loam, 6 eroded Herndon silt loam, 10 to 15 percent slopes, eroded Herndon silt loam, 15 to 25 percent slopes Lloyd loam, 2 to 6 percent slopes, eroded Lloyd loam, 6 to 10 percent slopes, eroded Lloyd loam, 10 to 15 percent slopes, eroded Louisburg loamy sand, 2 to 6 percent slopes Louisburg loamy sand, 6 to 10 percent slopes -15- * KEY 4n Map symbol LoD LwB LwB2 LwC LwC2 Ly Ma MdB2 MdC2 MdD2 MdE2 Me MfB MfB2 MfC MfC2 MfD2 MfE MgB MgB2 MgC MgC2 MyB MyB2 MyC MyC2 MyD NoA NoB NoB2 HoC NoC2 OrB 0rB2 0rC2 PkC Map Mapping unit aymbol Louisburg loamy sand, 10 to 15 percent slopes PkF Louisburg-Wedovee complex, 2 to 6 percent slopes Ps Louisburg-Wedowee complex, 2 to 6 percent Ra slopes, eroded Fo Louisburg-Wedowee complex, 6 to 10 percent Sw slopes VaB Louisburg-Wedowee complex, 6 to 10 percent VaB2 slopes, eroded VaC2 Lynchburg sandy loam WaA Made land WaB Madison sandy loam, 2 to 6 percent slopes, WaC eroded WgA Madison sandy loam, 6 to 10 percent slopes, Wh eroded WkC Madison sandy loam, 10 to 15 percent slopes, WkE eroded WaB Madison sandy loam, 15 to 25 percent slopes, WnB2 eroded Mantachie soils WnC Mayodan sandy loam, 2 to 6 percent slopes WmC2 Mayodan sandy loam, 2 to 6 percent slopes, eroded WmD2 Mayodan sandy loam, 6 to 10 percent slopes Mayodan sandy loam, 6 to 10 percent slopes, WniE eroded Wn Mayodan sandy loam, 10 to 15 percent slopes, Wo eroded WsB Mayodan sandy loam, 15 to 25 percent slopes WsB2 Mayodan gravelly sandy loam, 2 to 6 percent slopes WsC Mayodan gravelly sandy loam, 2 to 6 percent WsC2 slopes, eroded Mayodan gravelly sandy loam, 6 to 10 percent WsE slopes WtB Mayodan gravelly sandy loam, 6 to 10 percent WvD3 slopes, eroded Mayodan silt loam, thin, 2 to 6 percent slopes WwC Mayodan silt loam, thin, 2 to 6 percent slopes, WwE eroded WwF Mayodan silt loam, thin, 6 to 10 percent slopes WxE Mayodan silt loam, thin, 6 to 10 percent slopes. Wy eroded Mayodan silt loam, thin, 10 to 15 percent slopes Norfolk loamy sand, to 2 percent slopes Norfolk loamy sand, 2 to 6 percent slopes Norfolk loamy sand, 2 to 6 percent slopes, eroded Norfolk loamy sand, 6 to 10 percent slopes Norfolk loamy sand. 6 to 10 percent slopes, eroded Orangeburg loamy sand, 2 to 6 percent slopes Orangeburg loamy sand, 2 to 6 percent slopes, eroded Orangeburg loamy sand, 6 to 10 percent slopes. eroded Pinkston sandy loam, to 10 percent slopes percent slopes percent slopes, eroded Mapping unit Pinkston sandy loam, 10 to k5 percent slopes F rummer sand Rains fine sandy loam Roanoke fine sandy loam Swamp Vance sandy loam, 2 to 6 Vance sandy loam, 2 to 6 Vance sandy loam, 6 to 10 percent slopes, eroded Wagram loamy sand, to 2 percent slopes Wagram loamy sand, 2 to 6 percent slopes Wagram loamy sand, 6 to 10 percent slopes Wagram-Troup sands, to k percent slopes Wahee fine sandy loam Wake soils, 2 to 10 percent slopes Wake soils, 10 to 25 percent slopes Wedowee sandy loam, 2 to 6 percent slopes Wedowee sandy loam, 2 to 6 percent slopes, eroded Wedowee sandy loam, 6 Wedowee sandy loam, 6 eroded Wedowee sandy loam, 10 to 15 percent slopes, eroded Wedowee sandy loam, 15 to 25 percent slopes Wehadkee silt loam Wehadkee and Bibb soils White Store sandy loam, White Store sandy loam, eroded White Store sandy loam, White Store sandy loam, eroded White Store sandy loam, 10 to 20 percent 6lopes White Store silt loam, 2 to 6 percent slopes White Store clay loam, 2 to 15 percent slopes, severely eroded Wilkes soils, 2 to 10 percent slopes Wilkes soils, 10 to 20 percent slopes Wilkes soils, 20 to ^5 percent slopes Wilkes stony soils, 15 to 25 percent slopes Worsham sandy loam to 10 percent slopes to 10 percent slopes, to 6 percent slopes to 6 percent slopes, to 10 percent slopes to 10 percent slopes, Adapted from: U.S. Department of Agriculture, Soil Conservation Survey for Wake County, North Carolina, November 1970. u -16- < Z M o OS < o s & o 2 2 D O U w $ I D W O 1 c o •H •p m •H e a) 0) 0) Q 5 J ■3 n il l§ oh -as, e S3 4) CD ■8-8 S 11- ..3 11 la © OX OJ3 a.2 Oj3 « 11 i 8 3 3§ ill ^s £ a •a 3 I 5 *- ? 03 3 V st| s m *i T^ H Eliig =8 <8 | £3^ A _ Si *3 3 a S — * a -mC 3 » &2« fc|« &§> o"o o. e*5 o. oil a a a frsi &t -J |1 el el <% a & fc ►. . 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SHOTS OF FLOODING IN MONTGOMERY COUNTY, TEXAS AFTERMATH OF FLOODS BRUCE BERRYHILL : There are certain areas that should never be developed , that people should never live in, and this particular area was a good example. Nature kept telling the people over and over again, "You have no business being here, this is my area and as long as you're here I'm going to continue to bully you until eventually you will have to get out." MUSIC: THEME MUSIC UP FOR TITLES, THEN UNDER TITLE SEQUENCE NARRATOR : Every year it costs this country about $4 billion to pay for losses due to floods. And a large part of these costs are spent again and again, as communities rebuild in flood hazard areas and take their chances with another flood. Settlement in a coastal or river floodplain has always been attractive: fertile farmland, water and electric power, transportation, and recreation have been a powerful draw. FLOODS AND FLOOD DAMAGE IN DIFFERENT PARTS OF THE COUNTRY BUILDINGS IN COASTAL AREAS , NEAR RIVERS -2- AUDIO VISUAL NARRATOR (con't.) And they've induced us to forget, for a while, vthat a floodplain is, after all, a place where floods occur. Attempting to reduce the impact of periodic flooding, we've built structures to keep water away from us. Even though it's always been too expensive to design structures that would protect against the worst possible event, these bridges, dams and levies gave us a false sense of security about living in the floodplain, It's been a difficult learning experience. But in recent years, we've taken a new approach. The National Flood Insurance Program, established in 1968, represented an important first step in federal efforts to reduce flood costs through non-structural measures. This program offers low- cost flood insurance to community residents and, in return, requires that communities adopt flood hazard management ordinances. These ordi- nances can significantly lessen the probability of greater flood damages occurring. To further emphasize the impor- tance of sound floodplain management, the President issued the Floodplains Executive Order in 1977. This order requires all federal agencies to give serious consideration to the impact of their activities on floodplains. It recognizes that huge economic losses are involved when there's an unwise investment in a flood-prone area, and requires that the special character and environmental values of floodplains be considered before dollars and lives are committed to such development. The newly created Federal Emer- gency Management Agency represents this new thrust in federal initiatives. FEMA's .six principal program offices DAMS , LEVIES FLOODS CAUSED BY DAMS BREAKING PICTURE OF BILL CREATING NFIP PICTURE OF EO 11988 PICTURE OF PRESIDENT CARTER SLIDE SHOWING FEMA'S 6 PROGRAM AREAS -3- AUDIO VISUAL NARRATOR (con't.) coordinate federal responses to all types of natural and man-made emer- gencies . The majority of disaster relief funds over the last few years have been spent on flood-related damages. In an attempt to move away from the traditional rebuilding and reflooding cycle, FEMA, through the Federal Insur- ance Administration, is now helping communities to reduce future hazards through floodplain management, flood- proofing and acquisition/relocation programs . The story of FIA's work in Mont- gomery County, Texas, is one of three community stories we'll be looking at. Each community had a flooding problem, and each devised its own strategy for solving that problem. SLIDE DEPICTING FLOOD SCENE WITH FIA TITLE OTHER FLOOD SLIDES MUSIC UP, THEN UNDER SHOTS OF MONTGOMERY COUNTY AS IT IS TODAY BOB CHENOWETH ; In the past ten years, we've come a long way in floodplain management. Especially in the sense of the non- structural solution vs. a structural solution. For years and years the idea was that you have to go out and protect the people by building a levy or a dam or some giant project, public works project, and slowly we've been turning that around to a non-structural solution. Instead of trying to keep the water away from the people, we're trying to keep the people away from the water. BOB CHENOWETH, WITH NAME AND TITLE ON SLIDE NARRATOR ; It was a solution that made sense. Whispering Oaks, a subdivision of Montgomery County, Texas, had been flooding an average of 4 to 5 times a year. FLOOD-DAMAGED HOUSES -4- AUDIO VISUAL NARRATOR (cont'd.) It was built in 1972, as part of a huge housing boom in the area sur- rounding Houston. Since it was built a year before Montgomery County joined the National Flood Insurance Program, the county had not yet passed their floodplains ordinance in compliance with the Program's guidelines. This ordinance would have prohibited new construction in the floodway had it been in effect. Instead, Whispering Oaks was built squarely in an old river bed , and prospective buyers were assured that the area would not flood. DIAGRAM OF FLOODWAY, FLOODPLAIN JOYCE MACDONALD ; We knew nothing about palmetto palms, or we would have known. Palmetto palms are plants that grow in standing water. In fact, I told the builder to please, when he leveled my yard after the house was finished, to see to it that they left those plants , because I thought they were beautiful, (laughs) Now we find out that we were actually on the river bed. PALMS GROWING NEAR FLOOD-DAMAGED HOUSES NARRATOR ; After joining the National Flood Insurance Program, Montgomery County should have been denying rebuilding permits to the damaged structures in the floodway. They were reluctant to do that, though, since that would leave the homeowners without a place to live. In July, 1979, the regional FEMA office informed the Montgomery County officials that they risked suspension from the flood insurance program, and they would become ineligible for future flood insurance or federal disaster relief funds unless they enforced the requirements of the floodplains ordinance At the same time, FEMA offered to work with county officials to develop a program that would move the residents' houses out of the hazard area. With this type- of federal support, county officials decided to deny the permits. COURTHOUSE IN CONROE -5- AUDIO VISUAL BOB CHENOWETH ; When these permits are denied, a homeowner is left stranded with a flood insurance check for his damages, but he is at the same time unable to rebuild or repair that structure. So the Federal Insurance Administrator made a determination that where an insured property owner had received the permit denial to make his repairs with his flood insurance monies, then she construed this loss to be a total loss, and at that point made funds available to that individual up to the limits of their policy. So the individuals were able to use the $35,000 flood insurance money in combination with the Small Business Administration low-interest disaster loan (due to the fact that this area had been a Pres identially- declared disaster area) , and take these funds and use them to pay off their existing mortgage, buy a vacant lot outside the floodplain, move that flood-damaged house out of the floodplain to the new location and repair it on the new location. NARRATOR (con't. ) : It makes a lot of sense to relocate the house out of the floodplain vs. repairing it and getting it ready for a new flood. SEQUENCE OF HOUSE BEING JACKED UP, MOVED , AND PUT ON NEW FOUNDATION NEW MUSIC UP, THEN UNDER SCENES OF FLOODING IN BALTIMORE COUNTY NARRATOR: Like Montgomery County, Baltimore County, Maryland has experienced tre- mendous growth over the last decade. And it, too, has been hard hit by flooding, much of the damage exacer- bated by inadequate structures and extensive residential development in the floodplain. -6- AUDIO JOHN SEYFFERT ; (cont'd) Baltimore "County today is recovering from the building boom of the late 60's and early 70' s, where the development pressures and the building activity were such that I honestly believe that the local government was just unable to keep up with it and to enforce and to adequately plan and provide for it. Back in the 60*5, there was very little thought given to what in fact was a floodplain. There was a lot of thought given to letting houses be built near little babbling brooks and little streams, and if the stream was in the way, they could bulldoze it over a little bit, put the house in, and the stream would stay off to the side . In the five year period from 1970 to 1975, Baltimore County suffered in state, local and federal dollar damage about $85 million worth of flood-related damage. And lost 13 citizens to floods. Which did a great deal to heighten awareness, not only of citizens, but of local politicians. NARRATOR: This heightened awareness resulted in a determination by the county to solve its own flooding problems. A task force was created, and it found that in addition to the $85 million cost immediately evident, there were hidden costs associated with police, fire, and emergency services that brought the total even higher. None of these expenditures were solving the basic problem. Structures like bridges or culverts might be re- paired in one area, only to cause even more flooding downstream, or be damaged again during a subsequent storm. The task force decided that the problem had to be analyzed on a water - shed basis, and that a comprehensive solution had to be designed. It also made sense to take hard look at the economics of each situtation. VISUAL JOHN SEYFFERT, NAME AND TITLE ON SLIDE HOUSES LOCATED IN DANGEROUS AREAS FLOOD DAMAGE - TASK FORCE MEETING AREA MAP BY COMMUNITY SAME MAP AS A WATERSHED DIAGRAM -7- AUDIO VISUAL JOHN SEYFFERT : A classic vexample is that we had a small, highly reactive, highly developed watershed of about 25 square miles that had flooding problems that were affect- ing something in the order of between 17 and 20 homes that were built in the floodplain. And what was causing the flood problems was an undersized bridge. The public works department had done a cost estimate on enlarging the bridge, which would cost about $1.8 million. The task force sat down, and identified that the 20 homes were worth about $900,000 market value, plus relocation. I made the deter- mination that the county should buy the homes, either demolish or remove them, and turn the area into a linear park system for the community. And that was a recommendation which was made in 1976, and today is fact. EXAMPLE AREA BRIDGE IN AREA GRAPHIC TREATMENT OF THE NUMBERS NARRATOR : So far, the county has removed 172 houses from the floodplain . . without outside help. JOHN SEYFFERT : Part of the uniqueness of our program is that it is all local money. There is no federal money and no state money. The total package of $26 million basically came from a reallocation of priori- ties within the county. Instead of spending $5 million a year on storm drain improvements that really didn't resolve any problems , we are now spending that same five million dollar spending level on acquisition of flooded homes. So that we are getting a positive result. -8- AUDIO VISUAL NEW MUSIC UP, THEN UNDER AERIAL SHORT OF SANIBEL ISLAND JOHN CLARK : Sanibel is a sand bar, a long one, 12 miles long, that was built by ocean forces at a distance of about 4 miles from the mainland. It's all built out of sand and wrinkles like corduroy that extend from the north tip around the south tip of the island. In the center of it is a 3 ,500 acre wetland swamp area with a river in it. The island, until recently, was a community mainly of people interested in nature, nature freaks of all kinds. But it was a prime piece of real estate, and when the coastal boom hit here after World War II, speculators' interest was drawn to Sanibel. NATURAL BEAUTY OF ISLAND NARRATOR : A bridge was built from the mainland , and rapid development of the island came with it. Canals were cut through the island , draining the wetlands in the interior. Houses were built on the canals , and on the dunes , and began to pollute the water. CAUSEWAY CANALS PORTER GOSS : Back in 1972, it became obvious to those of us living here at the time, that the kind of development that was taking place wasn't what we wanted for Sanibel at all. Uncontrolled growth really was outstripping the services and the natural systems of the island. We had a lot of building going up that wasn't safe. The type of construc- tion that we were objecting to was con- struction that was put on the wrong type of foundation, too close to the water, and positioned on the island at too low a sealevel where it was perfectly obvious that a tidal surge, or any type of storm surge, was going to do some serious damage, if not knock the darn thing down. * -9- AUDIO VISUAL NARRATOR: The concerns were real. First was one of safety. Most of the people coming to Sanibel had no concept of the enormity of a coastal flood. In the event of a hurricane, it's likely the entire island would be over-washed by storm-driven waves. With only one bridge to the mainland , evacuation of a densely populated island would be impossible. DIAGRAM OF DIFFICULTY OF EVACUATION PORTER GOSS ; We decided we absolutely had to have a managed growth policy, and we could not come to an agreement with our local government on that point. So we just went ahead and decided to incorporate ourselves as a city — we had the support of the people to do that. By becoming a city, we were able to impose our own land use planning, and implement the plan as law. NARRATOR : About the time of the incorporation, new federal and state laws were being passed that set more stringent standards for type and location of buildings in coastal areas. For example, regulations issued by the National Flood Insurance Program required that new development in high hazard areas be elevated on pilings and constructed to withstand hurricane force winds. In addition, mangrove stands and sand dunes were to be protected. Sanibel used all these provisions as a starting point, and came up with their own stricter guidelines . They imposed a future limit on the population of the island, and distri- buted the permitted number of new struc- tures in accordance with the carrying capacities of natural systems. Strong performance standards were set for new development: distance from the beach, flood height elevation, limits of the clearing of vegetation. EXAMPLE OF GUIDELINES -10- AUDIO NARRATOR : (cont'd) They devised a plan for restoration of past ecological damage and insured a continuing high level of public involvement. VISUAL PORTER GOSS : Sanibel is a place where you walk the beach at night, you maybe fish a little bit, you shell a little bit at low tide — you enjoy it for what's here. And you don't try and change it. THEME MUSIC UP, THEN UNDER BEAUTY SHOTS OF SANIBEL REPRISE OF SLIDES FROM THREE EXAMPLES NARRATOR: Creative approaches to flood hazard management are being implemented by local government across the country. These communities have analyzed their particular situations, and drawn up plans that work to reduce flooding, and also to meet other community goals. NARRATOR : (con't) Drawing upon technical assistance and valuable data provided through the National Flood Insurance Program, as well as other federal , state and private sources , these communities have tailored their programs to best meet their needs. END MUSIC UP, THEN UNDER REPRISE OF SLIDES FROM OUR THREE EXAMPLES BRUCE BERRYHILL : Something has to be done to that flood over and over again, about it won't get it done, so just get in there and (this is a little pun we have) and get areas Talking let's kind of our feet wet. Let's just go ahead and get in there and try something. If it fails, well then, we'll £ry something else. G -11- a AUDIO PORTER GOSS : If enough people want to get something done, it'll happen. We have been told that there is no way we can do what we've done. We've done it, and we'll continue to do it as long as the people want it to be done. VISUAL "ASSISTANCE IS AVAILABLE FROM:" STATE FLOOD INSURANCE COORDINATOR FOR OVERALL COORDINATION OF TECHNICAL ASSISTANCE, CONTACT YOUR NFIP REPRESENTATIVE IN YOUR FEMA REGIONAL OFFICE 2> D '- * APPENDIX D CASE STUDY MATERIALS JS- ■» 5 < ^ o ;» m 70 O *> ^ Tl s i — 1- o «^ 1* o ^» & o § C* -o Cs Ss i — "K :s> .«*: *■ — •■ ? <• -19- ^ APPENDIX E SIMULATION EXERCISE (PAGAN) RIVERINE ) PLANNING for ACTS of GOD AND NATOBE PAGAN - Biver by Allan G. Feldt, The University of Michigan and flarissa T. Roche, The Conservation Foundation ACKNOWLEDGEMENTS This game was developed fcr presentation at a series of Community Flood Hazard Management Training Institutes sponsored by the Federal Emergency Management Agency. While the authors accept responsibility for the general content of the materials presented here, we are indebted to a number of persons and agencies for materials and ideas. Among others these include the U.S. Army Corps of Engineers, Fort Worth District, for materials derived from their Rowlett Creek studies, Katherine Warner of the University of Michigan, Clem Pastatter of the Conservation foundation, and Shannon Berger and David Feldt of Legacy Press. OPERATING CHARACTERISTICS: PAGAN is designed to be played in about three hours including debriefing. The first round should take about one hour allowing ten minutes for each of the six steps of play. Later rounds should take about one-half hour each with 5 minutes for each step. The game can theoretically be run with as few as three or as many as 142 persons by assigning up to 3 persons to each of the 42 interest groups and to the 12 elected governmental positions. A separate table or room is needed for each ward plus each governing body plus one for the game operator and accountant. For a full run of all three jurisdictions and all wards this would mean a total of 15 well separated tables cr rooms arranged spatially in a pattern approximating their geographic locations. Except for a pair of probability dice or their equivalent and a land use map of the thret towns, all materials required for the game are provided in this printout. Any nonprofit, educational, or governmental agency may copy all cr part of this document provided that each copy includes appropriate credit to the authors and the original sponsoring agency. Commercial or profit making organizations must obtain permission for use and copying in writing from the Conservation Foundation, Inc., 1717 Massachusetts Ave., Washington, D.C., N.W. 20036 " n TABLE OF CONTENTS ACKNOWTEDGEHENTS ii INTRODUCTION TO SIMULATICN/GAMES 1 OVERVIEW 2 COHHUNITY DESCRIPTIONS 4 PLANO with TABLE IA, Land Dse by Bole and Location ... 4 EICHARDSON with Table IB, Land Use by Role and Location, 7 GARLAND with Table IC, Land Use by Role and Location . • 9 ROLE DESCRIPTIONS 12 FEMA Officials and Insurance Claim Applications 12 local Government and Development Permits. ........ 14 Ccommunity Business • 17 Low Income Households ........... 20 diddle Incoire Households 22 High Income Households. ..... . . 24 Agriculture 26 Conservationists . 28 STEPS CF PIAY 29 TABLE II. IeveJs of Flood Protection 35 TABLE III. Flood Damage Table 37 OPERATOR'S INSTPUCTICNS 38 TABLE IV. Total Acres of Lard Use by Type, "Owner," and Location - Three Towns .... ..... 44 TABLE V. Interest Group Points Allocation Table 45 in e AN INTRODUCTION TO SIHOIATION/GAMES Simulation/games have been widely used in many disciplines to represent the complexities of multiple decisions under conditions of uncertainty. They have been used in military training excercises for over 150 years, in business management training for over thirty years, and in urban planning for ever fifteen years. Through deliberate abstraction of a problem to it's basic elements, simulation/games allow participarts of widely varying backgrounds to gain an overview of the problem being considered which can clarify and broaden their perspective wher they are faced with similar though more detailed issues in the "real world." In addition to providing an overview, games also collapse time, thereby enabling a player to see the effects of decisions over many years in the course of a few hours of play. Mcst simulation/games consist of three principle elements plus a variety of artifacts in written, mathematic, graphic, or physical form whose purpose is to record or convey information to players. The first principle element is the Scenario - the data and description of the time and place being represented in the game. The second element is the Boles - the primary actors in the game including descriptions of who they are, what their relative interests and strategies may be, and what their status is at the beginning of the game. The third element is some form of Accounting System - which records the decisions of players and determines what impact they have on the scenario and the roles. The accounting system must also feed some or all of this irfcrmaticn back to the players on a regular basis as a guide to future decision making. Most games are played over a series of time periods called "rounds" approxiffating some amount of time in the "real world" ranging from hours to decades. Similar activities usually take place each round with players making more rapid and sophisticated decisions in later rounds, as they becoie more familiar with the game and it's rules. The first round is often very confusing since players must learn to understand both the mechanics of the game and the factors influencing their decisions. In later rounds confusion over rules and game mechanics dissipates while the complexity of decisions may increase due to the increasing sophistication of the players plus the increasing effect of decisions accumulated from previous rounds. Simulation/games can be reasonably accurate representations of the "real world" situations they depict but their outcomes should not be interpreted as predictive of how real events are likely to turn out. Simulatior/games are merely representations of how various components interact. The assumptions of the persons designing them plus the decisions of the players themselves strongly effect the outcome. Such an outcome represents at best only one of many possible worlds which could emerge in the "real world" system being modeled. Thus all simulation models, regardless of their complexity can never be anything more than instructional devices allowing us to observe and experiment with possible futures. OVERVIEW PURPOSE: PAGAN attempts to provide an understanding of the conflicting interests involved in developing a flood hazard management program. Based on case study materials, the game reguires players to try to resolve the conflict between advancing their own interests through acquiring more property and points (currency) and protecting their own and tbe community's interests through providing an adequate level of flood protection. GAflE STEPS: The game is played in successive rounds, each of which consists of six steps that take place over a time period representing five years. During each round, players are exposed to varying size storms and must consider the resulting costs of disasters that arise through their own activities, the activities of their neighbors and Acts of God And Nature. The steps are: 1) Weather — Establish the amount of damage which has occurred through floods during the previous five years; 2) Poin ts — Establish the points (currency) earned by each player; 3) Tax es — Local governments assess and collect taxes; 1) Development — Individual players develop additional units of land in order to accumulate wealth (points) ; 5) Protecti on — The community establishes the desired level of flood protection. 6) L oca l Government Action — Referendums, elections, and public meetings to establish future strategies to complete passage of floodplain ordinances, and to elect new local officials if necessary. SCENARIO: The action takes place in the three adjacent towns of Piano, Richardscr, and Garland, a rapidly suburbanizing area in the Rowlett Creek drainage district just outside a major metropolitan area. The area has suffered very little flood damage in the past but local authorities have warned of increasing possibilities of major floods due to developments in the area over the past decade. The amount of damage which might be sustained in future floods will be determined by both the type of development involved and the level of flood protection provided by local authorities. Players may influence the level of hazard protection and the degree of community development by investing pcints towards either or both of these options. Points received in later rounds depend upon how well the interests of each team were met in earlier rounds. ROLES: The three towns are made up of wards each of which in turn contains a number of interest groups represented by assigned game roles. Interest groups vary among the different areas but generally M consist of Low Income Households, fliddle Income Households, Upper I Incoie Households, Local Business, Local Conservationists, Agriculture, lecal Government elected by the players in each ward or township, and representatives of the Federal Emergency Management Agency (FEMA) • Each ward or township is seated at a separate table with the three communities located in different parts of the room or in separate looms. The central task, facing each community individually and as a group is to reach an agreement among diverse interests on the type of growth desired and the degree of hazard protection to be provided. Cooperation among wards, interest groups, and communities is encouraged but is hampered by problems of communication, differing interests and differing perceptions of the problems faced. ACCOUNTS: The basic variables in PAGAN are 1) the amount of land of a given type controlled by each player; 2) the amount of damage that land receives each round; 3) the number of points each player receives as a result of land holdings and damages; **) the tax rate set by local governments; and 5) the level of flood protection provided. Both players and the game operator keep records on the levels of these five variables during play and their figures are reconciled each round when PAGAN Points are paid out. " THE TOWN OF PLANO The three tovns of Piano, Bichardson, and Garland Bake up the lover half of the Rowlett Creek Basin, occupying about 66 square miles, 75% of which is still in agriculture or grazing. About 9,900 acres or 23% of the area lies within the 100 year flood plain of Rowlett Creek, Cottonwood Creek, Spring Creek and their numerous tributaries. Prior to 1960 the area was almost exclusively farm and grazing land but rapid expansion of nearby metropolises has resulted in major developments of residential and commercial land uses as well as some expansion of light industrial uses. The growth rate of the three cities over the past decade has been very high. Piano grew at a rate of 11.1% per year over the past decade, increasing its 1970 population of 23,500 to 71,300 in 1980. Although over 70% of the town is still in agricultural use and almost 7% is vacant, continued population pressure over the next few decades is expected to reduce these percentages significantly. Piano is drained by 3 major creeks and their tributaries. Rowlett and Cottonwood Creeks to the East drain the large town of HcKinney upstream and have bread flood plains extending 400-1000 feet on each side of the creek beds. Spring Creek to the West is more deeply incised, drains a less urban hinterland, and has a narrower flood plain. Past flooding has been minor but new developments in and around the Spring Creek and Rowlett Creek floodplains plus continued development of the City of HcKinney may cause much more serious problems in the future. ^ The economic base of Piano is still primarily agricultural, although commercial, industrial and residential land uses have begun to become more dciinant. Recent developments in flood prone areas have led local authorities to estimate that a "10 year flood" would cause several hundred thousand dollars in damage to properties in the city while a "1C0 year flood" would cause well over a million dollars in damage. Furthermore, upstream developments have begun to change run off characteristics in the local watershed such that the probability of severe floods has been significantly increased in recent years. The older developed sections of Piano have experienced little flooding in the rast due to their location on the high ground between Rowlett and Spring Creeks. Recent single family houses and mobile home developments have occured to a considerable degree in or near the flood plains of the creeks and their tributaries. These developments in turn have begun to change local run off characteristics and have begun to affect downstream flooding probabilities. The mayor and most local business people strongly advocate continued growth and oppose any form of controls which might inhibit the current development boom. The community has adopted minimum NFIP reguirements (level II Table II) including designation of the 100 year flood plain and requiring elevation of new structures built within the flood plain. Pressures for continued development in the attractive wooded areas along the creeks and the lack of any important history of flooding activities have combined to produce very lax enforcement of these new regulations, however. Recent state regulations and 203 planning studies have recommended that local authorities prohibit further development in the flood plain and also take steps to minimize storm water run off and pollution through the creation of storm water retention basins and strict enforcement of local sediment control ordinances. Public officials of Piano have not yet taken any steps to follow through on these recommendations. Piano is made up of five political wards with a diversity of interest groups in each. Ward One consists of the older city center plus much of the recent industrial and commercial growth. Residents are from the middle and lower income classes and there are no agricultural or conservationists interests in the ward at this time. This area is well above the "hundred year" flood line and is expected to suffer very little flood damage in even the most severe, flood. (Low Income, Hid Income, and Business) The Seco nd Ward lies just west of the downtown area and contains a little commercial develcpnent plus a small industrial park. Residents are predominantly middle income in lower density residential developments although a few lew income residents are found in high density residences near the business district and in low density residences just beyond the industrial park, several farms still exist in this ward butthere are no conservationist interests at this time. About 520 acres of Ward II are located in the flood plain and 160 of these acres contain residential or industrial developments. (Low Income, Mid Inccie, High Income, Business, Agriculture) The T hird Ward occupies the northwest part of Piano and makes up the major agricultural part of the city. Population is middle and upper income occupying low density residential units in the lower part of the ward. Several parks provide some strength to conservationist interests in this ward although the predominant interest group tends to be agriculture. About 1360 acres lie in the flood plain of either Spring or West Bcwlett Creek and 120 of these acres are developed in low density housing occupied by middle income groups. (Hid Income, High Income, Conservation, and AGriculture) The Fourt h Ward lies directly north of the downtown area and is heavily cut by branches of Rcwlett Creek and its tributaries. Host development consists cf low and high density residential areas along the southern edge of the ward together with a small commercial development. A croup of low income families occupying mobile homes spread along one of the creeks and a large new industrial complex just north of that make up the rest of the non-agricultural uses in the ward. About a third of the ward lies within the "hundred year" flood plain and about 160 acres of the flood plain contains developed properties. (Low Income, Mid Income, Business, and Agriculture) . The Fift h Ward occupies the sparsely settled eastern third of Piano. It contains only a few lower density residential areas all located in the beautifully wooded floodplains of Rowlett Creek and its western tributary draining the downtown area. Several pleasant parks are located here as well but the predominant interests arel agriculture. Aliost forty percent of Ward V lies within the flood^ plain including all 210 acres of current residential development. (Low Income, Mid Income, High Income, Conservation, and Agriculture). TABLE IA. Acres of land Use by Type, "Owner," and location - Town of Piano — 1 1 Use Type | Cwner , r Ward Total I i i I II III IV V 1 < low . . . . | Lo Inc. . i 40 120 160 80 400 Density . .|I1ed. Inc. 80 680 720 320 40 1, ,840 Residences | Hi Inc. . 40 200 120 360 High . . . | Lo Inc. . 240 40 120 400 Density . . |Med. Inc. 40 120 160 Residences | Hi Inc. . Commerce . | Business 1 360 80 40 480 Industry .1 Business • 1 360 40 120 520 1 Parks Rec. | Ccnserv . 120 80 200 Agriculture! Agricult. 1,280 6,400 1,920 5, ,120 14 ,720 Vacant . .JOperator i I 440 400 440 80 40 1- ,400 r ■ - I U i A L . . «|. ........ 1 |1,520 2,720 7,880 2,880 2, ,160 20, ,480 | ... ..IN FLOOD | .PLAIN . 1 o 520 1,360 1,080 2, ,160 5, ,120 TO»N OF BICHABDSON The three tcwns of Piano, Bichardson, and Garland make up the lower half of the Bowlett Creek Basin, occupying about 66 square niles f 75* of which is still in agriculture or grazing. About 9,900 acres or 23X cf the area lies within the 100 year flood plain of Bowlett Creek, Ccttonwood Creek, Spring Creek and their numerous tributaries. Prior to 1960 the area was almost exclusively farm and grazing land but rapid expansion of nearby metropolises has resulted in major developments of residential and commercial land uses as well as soae expansict of light industrial uses. The growth rate of the three cities over the past decade has been very high. Richardson occupies a narrow strip of land about one mile wide by six miles long between Plane and Garland Cities. Bichardson*s population has grown at a rate of 7. 731 per year since 1970, increasing its size from 8,100 persons in 1970 to 17,500 persons in 1980. Although over 5?% of the city is still in agricultural use and almost 7% is vacant, continued population pressure over the next few decades is expected to reduce these percentages significantly. Bichardson is heavily cut by Spring and Bowlett Creeks and their tributaries. Over 305 of the land area lies within the hundred year floodplain of these two creeks and their tributaries, including 440 developed acres. No history of flood damage in Bichardson exists at all since until quite recently the town was almost completely agricultural in its development. The area is expected to undergo increasingly severe flooding problems, however, due to the heavy development occuring upstream in both Piano and HcKinney. Indeed, local experts have indicated that the probability of "10 year" and "100 year" floods are now substantially greater than the normal 10% and 1*, respectively. Bhile still largely agricultural, recent subdivisions have resulted in the conversion of almost a thousand acres to residential and commercial uses. Local residents and officials are more amused than concerned over recent growth, chuckling among themselves at the outlandish prices the "city folks" are willing to pay for almost worthless grazing land. Town officials reluctantly agreed to entering the emergency phase of the NFIP program (level II, Table II) , requiring specification of the hundred year flood plain and assurances that the town will begin efforts to more closely regulate developments in the floodplain. Local opinion is that this step is just some more federal paperwork that has to be dene to keep the state and federal government people happy. No one in Bichardson takes the matter very seriously. As such, property cwners in Bichardson are entitled to 50% reimbursement for damages sustained for one cccurence only. Subsequent damages will not be covered by insurance unless the community enters a regular program at a higher level of protection. Bichardson is made up of only two wards with most development occuring in the western First lard. The First Ward contains a small commercial district and industrial district plus a scattering of low and high density residential areas occupied by all three income classes. Six hurdred and eighty of the First Ward's 2,200 acres lie within the hundred year flccd plain and 240 of these acres are occupied by low density housing occupied primarily by middle income residents. Agricultural interests are still an important part of First Hard activities but several large farms have succumbed to the higher prices being offered for urban land uses and only 1,280 acres remain in agriculture. (Low Income, Hid Income, High Income, Business, and Agriculture) ( The S econ d Ward is even more sparsely populated containing only 200 acres of low density residential developments, all located within the hundred year flcod plain. A small business district, 80 acres of parks and several large farms make up the rest of the Second Ward. (Mid Income, High Income, Business, Conservation, and Agriculture) TABU IB. Acres of Land Use by Type, "Owner," and Location - Town of Bichardson Use Type ~T Cwner r Ward Total i I II Low .... T Lo Inc. . I 160 160 Density • . fled. Inc. 200 160 360 Residences I Hi Inc. . 40 40 High ... r - Lo Inc. . Density . . Red. Inc. 40 40 Residences Hi Inc. . 40 40 Commerce Business I 120 40 160 Industry i Business 80 80 r Parks Pec. Conserv. 80 80 Agriculture Agricult. I 1,280 1,920 3 ,200 Vacant • • I ... Operator 280 280 TCTAL ... 1 — t 2,200 2,240 4 ,440 . .IN FLOOD r .PLAIN . I 240 200 440 ( THE TCtiN OF GARLAND The three tcwns of Piano, Richardson, and Garland Bake ap the lower half of the Rowlett Creek Basin, occupying about 66 square miles, 75* of which is still in agriculture or grazing. About 9,900 acres or 23T cf the area lies within the 100 year flood plain of Rcwlett Creek, Ccttcnwood Creek, Spring Creek and their numerous tributaries. Prior to 1960 the area was almost exclusively farm and grazing land but rapid expansion of nearby metropolises has resulted in major develorsents of residential and commercial land uses as well as some expansion of light industrial uses. The growth rate of the three cities over the past decade has been very high. Garland grew at a rate of 9.2% per year over the past decade, increasing its 1S70 population of 13,400 to 33,600 in 1980. Although over 83% of the town is still in agricultural use and almost 2% is vacant, continued population pressure over the next few decades is expected to reduce these percentages significantly. Garland is drained by Rowlett and Spring Creeks, the latter joining the Rowlett just south and east of the downtown business district. The flccd plain of Rcwlett Creek is quite broad in Garland, extending to as much as 1500 feet on each side of the creek bed in some areas. While flooding has been only a minor problem in the past, substantial new developments up stream plus a number of developments within the flocd plain of Rowlett and Spring Creeks make the likelihood of significant damage from future floods much greater than in the past. State and federal officials have estimated that flood damages could range frcm several hundred thousand dollars for a "ten year* flood up tc almost a million dollars for a "hundred year" flood. They also warn that the probabilities of such floods occuring has increased due to changes in run off patterns incurred by substantial urban development in McKinney, Piano, and Richardson. The economic base of Garland is still primarily agricultural, although industrial and commercial uses have begun to impinge on farm lands, particularly in the first and third wards. Over half of the agricultural lands are located in the southern Third Ward with the balance fairly evenly divied between the other two wards. Local officials have thus far been delighted with the recent increase in tcwn population and business activity. They have been actively promoting Garland as a primary commuting suburb of the nearby metropolis, especially emphasizing the amenities to be found in the southern parts of town around Lake Roy Hubbard into which Rowlett Creek drains. The community has adopted minimum NFIP requirements (Level II, Table II) including designation of the hundred year flood plain and reguiring the new structures in the floodplain be elevated to the level of expected hundred year floods. Controversy still surrounds this neve, however, since it is seen by some as inhibiting further growth and development. Thus far, enforcement of the requirements has been lax. Recent state regulations and recommendations stemming from local 208 plan studies have suggested that local authorities prohibit further development in the flood plain 10 and that they litimize storm water run off and pollution through the creation of storm water retention ponds and enforcement of local £ sediment contrcl ordinances. Garland is vade up of three political wards each electing one representative to the town board. The First Ward is Bade up of the original dcwntown area and its recently expanded business and residential district. Almost all housing in the area contains Hiddle Income Residents except for a 40 acre high density public housing project just ncrth of the downtown business district and a few low income residents on the southern edge of the downtown area. Nine hundred and twenty acres of Ward One lie within the floodplain of Rowlett or Spring Creeks and 440 of these acres contain some kind of land use developirent. Three thousand eight hundred and forty acres of Ward One are still in agricultural uses. (Low Income, (lid Income, Business, and Agriculture) . The Se con d jjard lies on the eastern boarder of Garland and its developments are largely extensions of the downtown developments found in Ward One. This consists of a small Industrial area and a scattering of Lew and Middle Income residents occupying both low and high density residential areas. Seven hundred and sixty acres of Ward Two lie in the flccd plains of Rowlett Creek and 360 of these acres contain developed properties. Over 3,000 acres are still in agricultural uses and Ccnservationist interest are represented in an eighty acre park just outside the Rowlett Creek floodplain. (Low Income, Mid Inccve, Business, Conservation, and Agriculture). The Thi rd Ward occupies the southern half of Garland and abuts the increasingly popular summer home area bordering Lake Roy Hubbard. An Industrial area along the northern border lines the banks of Rowlett Creek just outside the hundred year floodplain. Residential units in the southern lake shore area are exclusively High Income residents while a few Low Incoie residents are found in the north western part of the ward. Most of the ward is still made up of faming and grazing lands comprising a total of 8,360 acres. One thousand seven hundred and twenty acres lie within the hundred year flood plain of Rcwlett Creek with 240 acres currently occupied by industrial or residential developments. (Low Income, Mid Income, High Income, Business, Conservationists, and Agriculture). < TABLE IC. Acres of Land Ose by Type, "Owner," and Location - Town of Garland 11 Use Type -4- i Owner i Ward Total i I II III i T Low .... Lo Inc. . 40 80 120 240 Density . . Med. Inc. 760 280 1 ,040 Residences i r Hi Inc. • 40 40 High ... r Lo Inc. • 40 40 Density . . fled. Inc. 120 80 200 Residences L. Hi Inc. . 120 120 Commerce r Business 400 40 440 Industry Business J 80 80 160 320 1 Parks Rec. Conserv. 80 80 160 Agriculture Agricult. 3,840 3,200 7,680 14 ,720 Vacant . . i_ Operator 160 40 120 320 TOTAL ... 5,440 3,840 8,360 17, ,640 , w-r v . .IN FLOOD r .FLAIN . 960 760 1,720 3 ,400 r 12 ROLE DESCRIPTION - FEMA OFFICIALS (1 Team) As employees of the Federal Insurance Administration you have two primary responsibilities relating to the residents of the area. 1. You will administer flood insurance payments to property owners who sustain damage as the result of a flood. Payments will be conditioned as follows: a) The Community must be enrolled in the National Flood Insurance Program. At the start of the game all cormunities are in the NFIP program. However, they do have the option to drop out if they choose. b) Property cwners frcm eligible communities must reguest payment on the appropriate forms (available only from FIA officials) indicating they have in fact purchased a flcod insurance policy. c) For the fir st flood even you will pay all eligible property owners who reguest reimbursement 50% of the total damage sustained. d) If, in subseguent rounds of play, property owners again sustain property damage you may not provide any reimbursener.t unless the commun ity in which the property 2it£§I lives has adop_ted Flood Protection Level III or higher. If the community has adopted the appropriate ( level of flood protection, you may again reimburse property owners 50% of total damages sustained. 2. You may provide technical assistance to local communities upon reguest. In order to accomplish your tasks most effectively, you may want to appoint certair FIA officials to handle Flood Insurance and others to provide technical assistance. 13 APPLICATION FOP NATIONAL FLOOD INSURANCE PAYMENT Name/Bcle: Location: Round: Land Use Type: No. Acres Damaged: Value (Acres Damaged/40) : Business Value (Acres Damaged/20) : Amount Requested (Ic maximum of 50% of damage: _ _____ Amount Awarded: $ Request Denied: (explanation) (Signature of FIA Official) APPLICATION FOR NATIONAL FLOOD INSURANCE PAYMENT Name/Role: Location: Round: Land Ose Type: No. Acres Damaged: Value (Acres Dawaged/UO) : Business Value (Jcres Damaged/20) : Amount Requested (To maximum of 50% of damage: Amount Awarded: $ Request Cenied: (explanation) (Signature of FIA Official) 14 ROLE DESCRIPTION - LOCAL GOVERNMENT (1-3 Teams) As elected officials you are responsible for the health and safety of your constituents as well as naintaining a stable and efficient comnurity. The issues of conmunity growth, flood and hurricane protection, and the management of frictions between other community groups are your foremost concerns, though other goals may also guide your decisions. Your performance will be judged by your constituents in an election at the end of every second round. local government has 4 basic powers: a) . You may collect taxes on the PAGAN points received by residents of your jurisdiction. The initial rate is 10% and it may be increased to as much as 40%. If Flood Protection Level V is passed it lay reach 50%. The new tax rate must be announced at the end of each round or it is assumed to remain the same as in the previous round. b) • Tou may place reasonable restrictions on new development by zoning certain areas within your jurisdiction for limited kinds of land uses or for no development at all. Tou may modify the existing reguirement for "balanced" development by requiring developers to provide 40 acres of parkland in addition to the required 40 acres of commercial development to accompany each 240 acres of residential development. New construction requires a building permit signed by local government, but refusal to sign a permit must be justified on the basis of a zoning decision placed on an official zoning map and announced at least one round prior to the refusal to sign. Tevelopers may sue for triple damages if they feel the refusal to sign is arbitrary and capricious. Such suits will be adjudicated by the game operator. c). You should propose a level of flood protection which accurately reflects the interests of your constituency. Representatives cf various wards should be sure they maintain contact with constituencies they represent. d) . You may enact any of the five levels of Flood Protection Programs described elsewhere provided that you meet the necessary costs and other requirements listed. e) . You may have 5 minutes at the end of each round {just before the election in even numbered rounds) to make public announcements regarding your programs, policies, zoning changes, tax rates, etc. You are advised to avoid letting this period turn into a public hearing or the 5 minutes allotted will be quickly used up. Any government or any group of 5 players may petition the game operator for a 10 minute public hearing once each round. I 15 f ) . You lay buy land from other players at the current market rate. If Level V Protection has been enacted you also have the pover to condemn land in High Hazard Areas for subsequent purchase by local government. g) • Ycu may assess each interest group an emergency levy of one point whenever a storm of hurricane severity or greater occurs to a community at less than a level IV Protection Level. These funds are to be used to provide emergency assistance to those interest groups most severely hurt by the storm. In order tc accomplish your objectives and use these powers effectively it is suggested that you appoint one of your members to each major task, e.g., tax collector, building inspector, flood protection director, and a chairperson to call meetings and deal with the public. If you wish, you may "hire" persons from the community to perform some of these tasks, paying them 1 or 2 points per round. 1i 16 DEVELOPMENT PERMIT DEVELOPMENT PERMIT Location Height _ Base Cost Surcharge land Use No. Acres Developer Approved Location Height _ B as e C ost Surcharge Land Use No. Acres De velo per Approved __ DEVELOPMENT PERMIT Location Land Use Height No. Acres Base Cost Developer Surcharge Approved DEVELOPMENT PERMIT DEVELOPMENT PERMIT Location Height Base Cost Surch arg e Land Use No. Acres Develope r Approved DEVELOPMENT PERMIT Location Height Land Use Location No. Acres Hei ght Base Cost Developer Surcharge Approved DEVELOPMENT PERMIT Base C ost Surcharge L and Use No. Acres Develo per Approved DEVELOPMENT PERMIT Location Height Base Cost Surcharge Land Use No . Acres Developer Approved Location Height Base C ost Surcharge Land Use No. Acres Develope r Approved DEVELOPMENT PERMIT DEVELOPMENT PERMIT Location Height _ Base Cost Surcharge Land Use No.. Acres Developer Approved Location Height _ t Base Cos t Surcharge L an d Use No. Acres _ Develope r Approved 17 ROLE DESCRIPTION - COflMUNITY BUSINESS (1-8 Teams) Players represent a specific interest group in each ward or township. They may play their role independently or they may combine forces with other players from the same district, the same interest group in other areas, or on any other basis that seems appropriate. As local business people you are interested in continued community stability and growth. A larger and more prosperous community will result in larger sales and service revenues, and in most instances the community business group has strongly supported new development. In addition to growth the business group must also address issues of disaster preparedness and flood protection, balancing the cost of these programs against the costs of development and the possible negative effects of restrictions on where new development may cccur. These restrictions are explained in the LEVELS OF FLCCD PROTECTION descriptions. Business interests are locatedin Wards I, II, and IV of Piano; in Hards I and II of Richardson; and in Wards I, II, and III of Garland. As local business people ycu may undertake new developments in the community. Vacant land may be purchased from the game operator and "developed" at a cost of 10 PAGAN Points per 40 acre unit. The cost of developient of parkland or agricultural land is only 3 points per 40 acre unit. Each developement undertaken, however, must be "balanced" in terms of the mixtures of new land uses provided within the sase municipality. A "balanced" mixture of land uses is defined as six 40 acre ucits cf residences and one 40 acre unit of commerce or industry. Local governnent may enact legislation reguiring 40 acres of parks and open space to acccnpany each "balanced" development. No development may be undertaken without a buildng permit signed by the appropriate local official. It is the responsibility of such officials to insure that additional local regurements for "balance" have been met. Newly developed residential units may not be operated by Business players. They oust be "sold" to other players representing Residential interests in that ward or township. The purchase price is whatever price can be agreed upon by the two groups of players involved. Commercial or Industrial developments may be retained and operated by the developer or may be sold to another group of business interests. No business property is considered in operation until the Residential units developed with it have been "sold" to legitimate Residential interest groups. Parks and Open Spaces developed in such a package become the property of the local municpality with point benefits going to the local Conservationists. Each group of players will take fifteen minutes at the start of the game to establish their roles. We ask you to be imaginative and to fill in the rcle you have been assigned with a variety of personal and professional information which you will create. As you describe yourself to the other people in your group (ward) you will want to describe: 18 1) your fanily; 2) your hobbies; 3) your specific profession (i.e., if you are a business interest, what type of business do you operate.) ; and 4) the rcles you have played in the community (both governmental and ncn-governaental) • ( CURRENT STATUS - BUSINESS City or County: Date of Run Ward or Towrship: Name of Player BASIS Rd. 1 Status Rd. 2 Rd. 3 Rd. <♦ DEVELOPED 4CRES YIELD at 2Ft/40 STORM DAMAGE . POINTS RECEIVED NEW DEVELOPMENT LCCATIO . . COST .... POINTS SFE*T . FINAL BAIAJCE . TOTAL DEV. 1CBES ( This is your score sheet which you will use to calculate your points during each round. Please note that points are the equivalent of currency for the purposes of this gaae. 19 The total rumber of points allocated to your role at the start of round one is indicated on line U. This total will remain constant throughout each round regardless of the number of players assigned to each role. Con*t worry if you're a bit confused. This accounting system will be fully explained before the start of the game. 20 BOLE DESCRIPTION - LOB INCOME HOUSEHOLDS (1-8 Teams) Players represent a specific interest group in each ward or l^ township. They nay play their role independently or they may coabine forces with other players from the same district, the sane interest group in other areas, or en any other basis that seems appropriate. As low income households you are concerned about the impacts of community growth and flood damage on your portions of the community. At the same time flood protection proposals frequently emphasize restrictions on new construction and possible relocation and demolition of tuildings in the flood plain. Because so much of your property is located in lowlying areas, you should be careful in supporting flood protection measures that nay prevent you from developing further and which may even result in elimination of your holdings and ycur role in the game. It might be advisable to demand relocation assistance as the price for your support of various flood protection proposals. Low income households are located in Hards I, II, IV, and V of Piano; Ward I of Richardson; and Vards I, II, and III of Garland. Each group of players will take fifteen minutes at the start of the game to establish their roles. We ask. you to be imaginative and to fill in the role you have been assigned with a variety of personal and professional information which you will create. As you describe yourself to the other people in your group (ward) you will want to describe: 1) your fatily; 2) your hobbies; 3) your specific profession (i.e., if you are a business interest, what type of business do you operate.); and 4) the roles you have played in the community (both governmental and non-governmental) . This is ycur score sheet which you will use to calculate your points during each round. Please note that points are the equivalent of currency for the purposes of this game. The total number of points allocated to your role at the start of round one is indicated on line 4. This total will remain constant throughout each round regardless of the number of players assigned to each role. Don't worry if you 1 re a bit confused. This accounting system will be fully explained before the start of the game. 21 CURRENT STATUS - LOW INCOME HOUSEHOLDS City or County: Date of Bun Ward or Township: Name of Player BASIS Fd. 1 Status Pd. 2 Bd. 3 Bd. (1 DEVELOPED ACBES YIELD at Ut/UO STORK DAflACE . POINTS RECEIVED NEW DEVELCIHENT LOCATICN . . COST . . . . POINTS SPEKT . FINAL BALANCE . TCTAL DEV. JCRES 22 ROLE D3SC5IPTION - HIDDLE INCOME HOUSEHOLDS (2-10 Teams) r Players represent a specific interest group in each ward or V^ township. They may play theic role independently or they may combine forces with other players from the same district, the same interest group in other areas, or on any other basis that seems appropriate. As middle income households you are interested in maintaining the current status of the community. Issues of community growth and flood protection are important to you, but the costs associated with them may make them undesirable or dangerous to your position. Bapid community growth opens the door to "new elements" in the community which may threaten community stability and the relatively powerful position of the middle class. While increased levels of flood protection are desireable for both economic and humanitarian reasons, as major tax payers your interest group will pay a major share of the costs. The benefits to ycur interest group will be less than to some other groups since most of your property holdings are already located at higher elevations. Fliddle income households are located in every Ward in all three towns except Ward III of Garland. Each group of players will take fifteen minutes at the start of the game to estatlish their roles. He ask you to be imaginative and to fill in the rele you have been assigned with a variety of personal and professional information which you will create. As you describe yourself to the other people in your group (ward) you will want to describe: •* 1) your family; 2) your hobbies; 3) your specific profession (i.e., if you are a business interest, what type of business do you operate.); and 4) the roles you have played in the community (both governmental and ncn-governmental) . This is your score sheet which you will use to calculate your points during each round. Please note that points are the eguivalent of currency for the purposes of this game. The total number of points allocated to your role at the start of round one is indicated on line 4. This total will remain constant throughout each round regardless of the number of players assigned to each role. Don»t worry if you^e a bit confused. This accounting system will be fully explained before the start of the game. ( 23 CURRENT STATUS - HIDDLE INCOME HOUSEHOLDS City or County: Date of Run Ward or Towrship: Name of Placer BASIS Rd. 1 Status Pd. 2 Rd. 3 Rd. 4 DEVELOPED ACRES YIELD at lPt/40 STORK DAMAGE . POINTS RECEIVED NEW DEVELOPMENT LOCATICS . . ttj I • • • • POINTS SEEKT . FINAL BAIAKCE . TOTAL DEV. ACRES % 24 ROLE DESCRIPTION - HIGH INCOME HOUSEHOLDS (1-6 Teams) Players represent a specific interest group in each ward or township. They may play their role independently or they may combine forces with other players from the same district, the same interest group in other areas, or on any other basis that seems appropriate. As high ircome ho overall guality cf the cc taxes. Higher levels o construction cost for man waterfront areas, and higher costs may discoura from building there. One growth which might cha measures as an inhibition of protection cd both pe residents are located in of Richardson; and Ward I useholds you are interested in im irmunity without being forced to f flood protection significantly i y of Hampton County* s scenic but f some individuals have suggested ge individuals other than high inc the whole, you tend to oppose llenge your status. Seeing flood to growth, you tend to favor hig rsonal and intellectual grounds. Wards II, III, and V of Piano; War II of Garland. proving the pay higher ncrease the lood prone that these one players community protection her levels High income ds I and II Each group cf players will take fifteen minutes at the start of the game to establish their roles. He ask you to be imaginative and to fill in the rcle you have been assigned with a variety of personal and professional information which you will create. As you describe yourself to the other people in your group (ward) you will want to describe: 1) your family; 2) your hobbies; 3) your specific profession (i.e., if you are a business interest, what type of business do you operate.); and 4) the roles you have played in the governmental and non-governmental). community (both This is ycur score sheet which you will use to calculate your points during each round. Please note that points are the eguivalent of currency for the purposes of this game. The total number of points allocated to your role at the start of round one is indicated on line 4. This total will remain constant throughout each round regardless of the number of players assigned to each role. Dc^t worry if you*re a bit confused. This accounting system will be fully explained before the start of the game. 25 CURRENT STATUS - HIGH INCOME HOUSEHOLDS City or County: Date of Run Ward or Township: Name of Player BASIS Rd. 1 Status Rd. 2 Rd. 3 Rd. 4 DEVELOPED ACRES YIELD at 1Ft/<»0 STOEM DAMAGE . POINTS RECEIVED NEW DEVELOEMENT LOCATICF . . COST .... POINTS SEEKT . FINAL BALANCE . TOTAL DEV. ACRES 26 PCIE DESCRIPTION - AGBICOLTORE (2-9 Teams) Players represent a specific interest group in each ward or township. They may play their role independently or they aay coabine forces with other players from the same district, the same interest group in other areas, or en any other basis that seems appropriate. As farmers you are interested in maintaining existing lands under cultivation and preventing the allocation of too much vacant or agricultural land for new development. In general you oppose growth as a threat to ycur own status but you are not opposed to selling some of your own farm land at a good profit to others looking for developable acreage. Taxes are burdensome, especially for farms located within the city limits. Your lands suffer very little from flood or wind damage except for occasional soil salinization due to high tides. As a result you tend to be indifferent to flood protection proposals except for the costs and taxes they reguire. Agricultural interests are located in every Ward of the three towns except Ward I of Piano. Each group cf players will take fifteen minutes at the start of the game to establish their roles. We ask you to be imaginative and to fill in the rele you have been assigned with a variety of personal and professional information which you will create. As you describe yourself to the other people in your group (ward) you will want to describe: 1) your family; 2) your hobbies; 3) your specific profession (i.e., if you are a business interest, what type of business do you operate.); and U) the roles you have played in the community (both governmental and non-governmental). This is ycur score sheet which you will use to calculate your points during each round. Please note that points are the eguivalent of currency for the purposes of this game. The total number of points allocated to your role at the start of round one is indicated on line 4. This total will remain constant throughout each round regardless of the number of players assigned to each role. Dc^t worry if you*re a bit confused. This accounting system will be fully explained before the start of the game. / * 27 CURRENT STATUS - AGRICULTURE City or County: - - -- ■ Date of Bun Hard or Township: Name of Player BASIS Rd. 1 Status Rd. 2 Rd. 3 Bd. 4 DEVELOPED ACRES YIE-LD at lPt/6U0 STORK DAMAGE . . POINTS RECEIVED NEW DEVELOPMENT LOCATICF . . \. vOl • • • • POINTS SPEFT . . EINAI BAIAhCE . TOTAL DEV. ACRES 28 ROLE DESCRIPTION - CONSERVATIONISTS (1-5 Teams) Players represent a specific interest group in each ward or ( tovnship. They may play their role independently or they may combine forces with other players from the same district, the same interest group in other areas, or on any other basis that seems appropriate. Conservationists are concerned with the preservation of existing parks and playgrounds, the control of new development, and the maintenance of existing natural barriers and safeguards against flooding. While you favor the growth restraints contained in flood protection proposals, you fear that providing higher levels of protection and insurance may make some ecologically sensitive areas more available to new development. Since Conservationists are not actually property owners like other players in the game, your major activity will have to involve encouraging other players to behave more responsibly towards the environment. Such encouragement may be through persuasicn or through legislation as well as through the direct exercise of political and financial power where you have only a small amount of clout. One of your more promising strategies is to encourage more park developments in low lying and sensitive areas - paying development costs with public funds when possible but offering some of your own points in support as veil. You may be able to convince your local government to pass legislation reguiring that developers provide 40 acres of parks and open space as part of a legally reguired "balanced" development package necessary for approval of building permits. Other • Accounting - Players are expected to calculate the number of points they are entitled to receive each round on the Current Status Form accompanying each role description. The game accountant will review this information each round before paying out the PAGAN points which have been earned. STEP 3_i TAXES - Each city and the county is empowered to collect taxes at a level deteroined by local government but varying between 10* and 4C% of the points earned. For the first round the tax rate is set at 20% for each of the three towns. At the end cf the first round each government must announce the new tax rate for the next round. Taxes due are rounded up or down to the nearest whole integer of points received at Step II of the current round. Conservationists are exempt from paying taxes on their properties. STEP Hi DEVEICEEFNT - Players from Business Interest teams may develop additional groups of 40 acre parcels of land in any location provided they have a signed Development Permit from the Building Inspector of the jurisdiction where the development is to occur. Development may occur only on land currently owned by the Business Team. Rules 1. A Business Team may purchase land from the operator or frcv other teams at whatever price can be agreed upon. All land sales must be recorded on the Current Status Form of tcth buyer and seller. The buyer can earn points on developed land only if he/she represents an interest group appropriate to the type of development involved. Existing developments may be demolished at a cost of 2 points per 40 acres of land to be cleared. Building permits are issued by local government officials when they have determined that the proposed development is in compliance with local zoning regulations, the general and local requirements for "balanced" combinations of development, and other development controls enacted locally including those required by approved hazard management programs. 2. A "balanced** combination of new developments is defined as six 40 acre parcels of residential development and one 40 acre parcel of commercial or industrial development. Local government may modify this "balanced" development requirement to require one additional 40 acre parcel of parks and open space. 3. The cost to develop a 40 acre parcel of land for most uses is ten points. Parks and Agricultural land costs 3 points per 40 acres. To reflect the existance of public services and roads, however, new development can only occur en parcels sharing at least one side with a previously developed parcel • The cost of development of r> V 33 a parcel nay be increased by 10-35% (the development surcharge) due to construction requirements imposed by the flocd protection level currently in effect. H. Additional pcints earned by newly developed land parcels is not paid out until Step 2 of the next round. 5. Players nay combine points with other players in any combination that seems workable regardless of interest group designation cr location. However, one player must be clearly designated as the party eligible to receive points from the accountant for any land developed through such ccibinations. STEP 5i PROTECT ION - Local government may enact one of the five hazard protection levels listed on Table II, the Levels of Flood Protection Table. Rules 1. local government may enact one of the five hazard protection levels, pass appropriate zoning legislation and hold those referendums which may be required to implement the new level. 2. J^a^ the descriptions of the flood h az ard pr o tectio n l§y.§is C-afSLfuliy. lQ d e term in e the exact requiremen t s £or enactment. All costs and other requirements must be met or the protection level provided in the previous level continues by default. 3« HQ.±£. ±k§L%. the. c ost s and protec ti ons lis ted are cumu lative from one level to the next . Only the difference between the new level and the previous level applies to either costs or benefits. 4. It is the local government's responsibility to obtain the necessary points to implement the flood protection program selected either through taxes, donations, or other sources. STEP 6^ ELEC TION - As the last step in each round, each local governmert is allowed five minutes to address their citizens. This would normally ccnsist of announcements of new levels of protecticn provided, new tax rates, new zoning restrictions and so en and might include appeals for reelection or passage of upcoming referenda. flules 1. Following any announcements referenda may be held and in even numbered rounds an election of local officials is held. Please note that any level of flood protection 34 beycrd Level II requires a referendum. If the required referendum has net already been held as a part of Step Five above, it must be held at this time. 2. Also durinq this period, any group of five or more players may petition the local government and the game operator for a hearing if some pressing issue has not been adequately handled or discussed. 35 TABLE II. LEVELS OF FLOOD PROTECTION P) V NOTE: All costs and change figures are relative to Level I. Actual costs and changes are the difference between current level and new level to be enacted, e.g., in going from Level II to Level III the community Bust pay and additional 60 points; construction costs will increase by 5%; and property damages will be decreased by an additional 10%. * NO PROTECTION: Development permitted with no effort to mitigate against potential flood damages. Community chooses not to enter or remain ir N.F.I. P. No flood insurance is available to local property owrers. Number of Community Points Needed to Implement: Property Tamages Community-wide Reduced By: 0% Construction Costs Increased By: 0% REQUIRED ACTIONS: No enactment reguired — default condition. II M INI MAL PROTECTION: Community adopts minimum FIA regulations. No development allowed within the "floodway." New construction within the 100 year flood plain must be elevated to the 100 year flood height. Insurance payments will cover 75% of the losses for the first occurance only . No coverage is provided for subseguent damages. Number of Community Points Needed to Implement: 40 Property Taraages Ccmmunity-wide Reduced By: 10% Construction Ccsts Increased By: 10% REQUIRED ACTIONS: Enactment by any town government. III MEDIUM PRpTF CTI ON: Community adopts minimum NFIP requirements. New construction within the 100 year floodplain must be elevated P.2S foot above J00 year flood levels . Existing structures which are not flcodpioofed are designated as in violation of the local building code. Develop evacuation/rescue plans. Insurance payments will cover 75% of the losses for each occurance. Number of Community Points Needed to Implement: 100 Property carnages Community-wide Reduced By: 20% Construction Ccsts Increased By: 15% REQUIRED ACTIONS: Community referendum needed to adopt new building code. Enactment by town government required (if referendum passes and if reguired points are available). 36 IV HIGH PROTECTION: Any new development in 100-year floodplain Bust comply with strict perfornance standards which ensure protection of critical natural resources. Carefully regulated development in uplands to minimize increases in flood flows and to protect water quality and other natural resources. Hew construction in the 100 year flood plain must be elevated 1 foot above the 100 year flood levels. Local aovernments c oordinat e in developing community flood evac uat ion plans and pos t-disaster rec over y plans which include publi c acquisition of most seriously damaged properties and r el ocati o n assistance to a ffecte d residen ts. Insurance rayments will cover 75% of the losses for ea ch occurance. Number of Community Points Needed to Implement: 180 Property Taaages Ccmmunity-vide Reduced By: 4015 Construction Costs Increased By: 25% REQUIRED ACTIONS: The evacuation plan must be passed by the local government and publicly posted. Evacuation refuge areas must be designated and stockpiled. Referendum in affected communities most approve policy of public purchase of flood damaged properties. v HIGHEST PROTECTION: Adopt a fully integrated hazard mitigation and natural resource protection program, including all of the measures described under HIGH PROTECTION above. In ad ditio n ins titut e a Eerjnit sy ste m to regulate develo pment on ecologicall y vital areas within the community^ including wetlands and edge zonesj. Begin now to acquire by. con demn a tion and purchase those land a nd bui ldi ngs in the most flood hazardous ar eas. provid e f°£ removal of s tru ctures^ restoration of area to its natural sta_t§ and relocation of affected resi dents . Adopt performance standards fcr upland development which ensures minimal increases in flood flows and soil erosion. Implement aggressive acquisition relocation program prior to next disaster, pursuing efforts tc restore natural resource values wherever possible. Initiate cooperative actions with other communities sharing the same watershed. Insurance payments will cover 75% of the losses fcr each cccurance. Number of Community Points Needed to Implement: 300 Property Tamages Ccmmunity-wide Reduced By: 60% Construction Costs Increased By: 35% REQUIRED ACTIONS: HIGH PROTECTION must have been in effect at least one round earlier. Reguires approval of each affected local government plus a local referendum to raise the tax limit. Allows local governments to raise taxes an additional 10% above the normal limits in order to provide funds for purchasing flood hazard areas. « 37 TABLE III. FLOOD DAMAGE TABLE Percent Damage by Location, Protection Level, and Flood Severity "T - 1 Piano 1 Richardson | Garland PROTECTION 1 Wards 1 Hards Wards LEVEL L-- i 1 I I II III IV i V I t I II I I II III LIGHT FLOODS. Prob. = 0.89, No's. = 12- 100 I T J 1 i 1 20 | 20 10 | 60 50 20 II 1 10 | 10 1 o 40 10 III 1 I 1 o 30 IV 1 I 1 o 20 V 1 I 1 o 1 - 10 HE/VY FLOODS. Prob. = 0.1C I, No's. = 2 -11 I ~T" 1 1 20 10 20 • I 40 | 40 30 I 80 70 40 II 1 10 10 30 1 30 20 I 70 60 30 III J 20 1 20 10 I 60 50 20 IV 1 C 10 | 10 | 50 40 10 V 1 1 I | 40 30 SEVERE FLOODS Prob. ■ 0. 01, No. ■ "T 1 i 1 V~" I 1 10 40 30 40 60 | 60 50 | 100 90 60 II 1 30 20 30 50 | 50 40 I 90 80 50 III 1 20 10 20 40 | 40 30 I 80 70 40 IV i 10 10 30 | 30 20 I 70 60 30 V 1 .1 20 | 20 10 I 60 50 20 c 38 CFERATOB'S INSTBOCTIONS NUMBER OF FIAYFRS; PAGAN-Coastal has been designed to accoaodate a large variety of players. Some approximate knowledge of the number of players to be accomodated must be available before the game, however, in order to decide which of the political jurisdictions are to be employed in the game run. In general, two or even three players are preferred in each role in order to force players to discuss their decisions among themselves, thus improving the information flow and learning potential of the game. Having at least two players in each role also allows for one to serve as a public official while the other can stay M at hcae" taking care of the special interests of the role. The total game consists of 42 interest groups or roles plus 12 elected officials in the 3 jurisdictions and a team of FEMA officials. For a small group cf players, the Town of Richardson alone could be played involving 10 interest groups plus 2 elected officials and the FFMA officials. Ideally this would involve 2 players per interest group with three to be elected to public office plus 1 or 2 persons assigned to represent FEMA for a total of 23-24 players. As few as twelve players could be accomodated if 1 were appointed to each interest group, the town government, and FEMA. Other combinations of 2-3 persons per team plus the use of larger jurisdictions and combinations of jurisdictions provides a considerable range of ways in which varying numbers of players may be accomodated in varying arrangements of the game. The table below summarizes these possibilities. NUMBER OF PLAYEBS OPTIMUM MINIMUM MAXIMUM BICHARDSON CNLY 24 12 35 GARLAND ONLY 33 16 48 PLANO CNLY 41 19 59 FICHARDSON AND GIRIAND 57 28 83 BICHARDSON AND PIANO 65 31 94 GARLAND AND PLANC 74 35 107 ALL THREE TOWNS 98 47 142 ROOM ARRANGIMENTS: A separate table for each ward or township plus one for each governing body and the FEMA officials should be arranged in a single large room in a pattern roughly conforming to their geographic distribution on the county map. Enough room must be provided to allow players relatively easy access to each other* s tables for pu£ roses of bargaining and discussion. The table for the elected officials should be located near the center of their respective wards and townships while the table for the game operator and accountants should be located off to the side, preferably near a blackboard or bulletin board. If a single large room is not available, each jurisdiction played could be located in a separate smaller room. Provison for movement * between rooms must be made, however, and a sngle larger meeting area fc 39 where all players can come together for "community meetings" and the debrifing at the end of the game is desireable. Separate roons for each jurisdiction usually results in lower levels of communication and cooperation between them, a situation it may be desireable to simulate in order to make plaers struggle with ways to oercome these problems. Each table and/or rocm shculd be clearly labelled with the name of the jurisdicticn an ward or township seated there. EQ UIP MENT; aside from paper and pencils, the only special equipment required by the game is some method of generating random numbers from 1 to 100 and some type of overlay map of the county large enough and distlayed prominently so that players may refer to it in their discussions and so that changes in land uses may be recorded upon it. Probability dice consisting of a pair of icosohedrons can usually be purchased in local hobby shops. Before casting them for the players be sure they understand which die represents the tens digits and which the units digits. Usually 00 is taken as 100. If probability dice are not readily available, a table of random numbers may be found in the back of most statistics texts. another possibility is to put 20 slips of paper into a paper bag. Two slips each should be numbered from to 9. drawing two slips of paper from the tag then generates two numbers with the ist number designated as the tens digit ar.d the second number as the units digit. The large map cf the county may be sketched fairly roughly since its major purpose is simply as a focus for discussion and to provide some location where »ajor changes in land uses can be indicated. An overlay of acetate or other erasable transparency will allow the map to be readily changed with grease pencils. PEIOR TO PLJY: If possible, several days before the game all players should receive a copy of the Introduction, the Overview, the Steps of Play, a City or County Map, an appropriate Community Description including Tables I and II, the Levels of Flood Protection Table (Table III), and the Stern Damage Table (Table IV). Specific role descriptions should usually not be provided beforehand in order to ensure that each role is filled at the time of play by assigning them enly at the actual start of the game. It is preferable to assign players to their roles first and to then ask them to choose their elected representatives from among themselves at the rate of one representative from each ward to serve on the City Council plus one representative from each city and each township to serve on the County Board of Supervisors. In this way they tend to have a clearer image of the fact that they are representing a particular constituency. If necessary, however, players may be assigned directly to local government immediately at the beginning cf play. In any event, role descriptions for local government including Building Permit Forms should be placed on the appropriate tables prior to the start of the game. 40 Enough copies of each role description to provide one for each player should be reproduced before the game. Extra copies of the ■ Steps of Play, Storm Damage Table, Flood Protection Table, and the Community Descriptions should also be reproduced prior to play since many of the players vill fail to bring their copies with them to the actual game run. Fill out a Current Status Form for each role being played and place several copies on the apropriate tables just before play begins or have an assistant pass these forms out to the apropriate interest groups while you are making your introductory remarks. Acreage figures and points for each interest group are given in the Interest Group Points Allocation Table (Table V) presented at the end of the Operators Instructions section. A single experiened operator can probably handle a game involving only one municipality. If inexperienced, an accountant assistant should be used for even a small game run. If two or more jurisdictions are being used in the same game, two or even three accountant assistants should be used to assist the game operator. DURING PLA Y - Only a very brief 5-10 minute introduction to the game should be provided prior to beginning the first round. Players usually have many guestions to ask prior to play but answering them before the game often creates more confusion than help. Host questions are much better answered during and immediately after the first round of play. The introduction should consist of guickly pointing out the locations of the various interest groups and V governments, the Steps of Play, the Storm Damage Table, the Levels of Flood Protection, the maps and the Current Status Form accompanying each of the rele descriptions. Players should be asked to locate their ward and their land developments on the land use map and to note the corresponding acreage figures given on the Current Status form. Players should be informed that the number of points they are about to receive are based upon the number of acres of land they own in their ward or township less a percentage equal to the amount of storm damage received in each of the last five years. The amount of land owned may be increased by the players following the procedures outlined in the Development Step of Play. Prior to tie first step of play, local officials must be elected if you have not already appointed them. Allow plaers a few minutes to discuss this amoivj themselves and then call for the election. Bemind them that the position is only held for two rounds and that they will have a chance to change their choices at the end of the next round. Some forcefulness may be called for here in order to get the election carried out quickly. Immediately following the election and the movement of the elected players to the tables provided for their respective goernments, announce the beginning of the game with the arrival of the hurricane season. Explain the meaning and use of the dice and roll them the » first time. Then refer players to the Storm Damage Table and show ^ 41 then how the severity of the storm and the associated damage levels are determined by the nunbers rolled by the dice. Roll the dice four ■ore tises to represent the remaining four years and announce the total impact of sterns over the previous five years in terns of the total amunt of damage accumulated. This varies by vard or townsip but pointing out one or two such cases and summing the percentages is usually enough tc make players understand how the procedure works. Players should then be instructed to fill out their Current Status Forms and go to the accountant to receive their initial PAGAN Points, thus initiating the second step of play. While this is going on, the operator sculd circulate among individual tables to help players to detersine their total damages and complete their Current Status Forms. Seme confuson can be expected here during the first round but by the second round this step should be quite straiqhtfovard. V'hile individual teams are obtaining their points, turn to the F1HA officials and warn them that they should be encouraging insured teams to make insurance claims for damages sustained. Players should be informed that they may be eligible for insurance and that they should check the rules under the second step of play as well as the FEHA officials to determine their eligibility. Gradually rost players will have worked themselves through the second step of the round. Points will have been collected and insurance forms filled out and possibly approved. FEHA officials will need some PAGAN Points to meet the claims filed. The operator should provide these carefully in order to make the FEHA officials a little cautious in approving claims. In general, the operator should provide just enough funds to meet all legitimate claims but should give the clear impression that funds will not be provided for poorly handled or spurious claims. A careful review of the claims filed in the first round is usually sufficient to make FEHA officials behave responsibly in later rounds. While all this is happening, local government should be meeting and appointing its own officers as suggested in their role descriptions. Urge them to appoint the tax collector right away so that you can help him/her begin to collect taxes at the first round rate of 20% as scon as individual teams have collected their points from the accountant. This gets the third step of play under way and completed while steps 1 and 2 are still underway for some of the players The initiation of step 4 may reguire a little more deliberate and separate discussion, although a few teams may have already moved into this step while you have been helping others through the earlier steps. At this point, the Business Teams in particular should be advised as to how they may undertake development, purchasing land from the operator and putting together enough funds to make up a "balanced" development package. It is likely that several Business Teams may have to combine resources in order to gain enough points for both land purchase and contruction. It may be that only part of the land purchases may be accomplished in the first round and no development will occur. 42 The operator is cautioned to exercise some care in allowing Busines Teaas to bay land. Development as an option in the game is , desireable and necessary foe realism in competition with flood ■-' proction issues. Some players may become totally engrossed in development, however, and prevent the entire community from considering flood protection programs. Some competition for attention and resources is desiieable but the operator can and should limit such efforts by refusing to sell enough land or making the prices for land high enough to irhibit too much development, it may take two or three rounds before any developer or combination of developers will have enough funds available to put a complete development package together. While all this is going on, many players including local government should be considering the possibility of enacting higher levels of flood protection, i.e., undertaking step 5. The operator should be ready to help explain the meaning of the various levels and to show how the amount of protection provided decreases the amount of damage shown in the Storm Damage Table. Local Government officials should be cautioned to irake sure they have enough funds available to pay for the level cf protection enacted and that they are aware of any referendums which may te required. Finally, th< elected spokesperson for local government should be coached to prepare a statement and agenda for step 6. Announcements must be made, referenda held, and perhaps a brief public hearing allowed for. Following completion of the public hearing the operator should step in to answer questions. After some discussion of the events in round one, the operator should point out that the players \ now know most of the rules and that the next round can and should proceed much mere quickly. The operator then pulls out the probability dice thereby announcing the start of the next round and the arrival of the hurricane season. The second and third rounds should proceed much more quickly and with less and less need for the intervention of the operator. Players should be encouraged to get into side discussions on the relative merits of various levels of flood protection and the ways in which it effects the community. As the third round draws to a close, it is probably time to consider breaking off the actual play of the game and leading the participants into a more general discussion of what has happened during the game. DEEfllEFIN G - Individual style dictates the manner in which the debriefing is to be held but several steps of discussion often help to lead the players out of the game and back into issues to be addressed in the real world. Some time is needed in the beginning of every debriefing to allow players to let off steam. Ask one or two of the players to describe what they were trying to accomplish and how well they succeeded. If several jurisdictions are being played, asking for a report from each and drawing comparisons among them may be helpful. f) 43 After a short time, however, players should be directed away froi happenings in the game towards broader questions regarding the significance of what happened to their interest groups. Did their flood protecticr program work? What kinds of problems were encountered in trying to get higher levels of protection passed? Mere these problems realistic? Which groups worked for flood protection programs and which ones were opposed? Why did they take these stands? Fairly quickly the discussion will take on its own character and lead players away from the game towards much broader discussions of flood protection issues and philosophies. At some point along here the game and the debriefing ends and the conference picks up again. In closing, thank the players for their participation. Then go buy yourself and your assistants a couple of good stiff drinks. 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Feldt, The University of Michigan and Marissa T. Roche, The Conservation Foundation ii ACKNOWLEDGEMENTS This game was developed for presentation at a series of Community •> Flood Hazard Management Training Institutes sponsored by the Federal Emergency Management Agency. While the authors accept responsibility for the general content of the materials presented here, we are indebted to a number of persons and agencies for materials and ideas. Among others these include the U.S. Army Corps of Engineers, Fort Worth District, for materials derived from their Rowlett Creek studies, Katherine Warner of the University of Michigan, Clem Rastatter of the Conservation Foundation, and Shannon Berger and David Feldt of Legacy Press. OPERATING CHARACTERISTICS: PAGAN is designed to be played in about three hours including debriefing. The first round should take about one hour allowing ten minutes for each of the six steps of play. Later rounds should take about one-half hour each with 5 minutes for each step. The game can theoretically be run with as few as nine or as many as 126 persons by assigning up to 3 persons to each of the 41 geographically separated interest groups and to the 14 elected governmental positions. A separate table is needed for each ward or township plus each governing body plus one for the game operator and accountant. For a full run of all three jurisdictions and all wards and townships this would mean a total of 16 well separated tables in one very large room or in 3 or 4 separate rooms, rooms arranged spatially in a pattern approximating their geographic locations. Except for a pair of probability dice or their eguivalent, all materials reguired for the game are provided in this manual. Any nonprofit, educational, or governmental agency may copy all cr part of this document provided that each copy includes appropriate credit to the authors and the original sponsoring agency. Commercial or profit making organizations must obtain permission for use and copying in writing from the Conservation Foundation, Inc., 1717 Massachusetts Ave., Washington, D.C., N. W. 20036 XI TABLE OF CONTENTS ACKNOWLEDGEMENTS ii INTRODUCTION 1 Ad Introduction To Siaulation/Games 1 Overview* • 2 COMMUNITY DESCRIPTIONS 4 Hampton County with Table I, Land Use; and lift, Ownership • • 4 Oakton City with Table I, Land Use; and IIB, Ownership . 8 Hamilton Beach City with Table I, Land Use; and IIC, Ownership • . 11 ROLE DESCRIPTIONS 13 FEMA Officials and Insurance Claim Applications 14 Local Government and Development Permits 16 Community Business. ...... ..... 19 Low Income Households .......... 22 Riddle Inccse Households. ........ . 24 High Income Households. ................. 26 Agriculture • 28 Conservationists 30 STEPS 0? PLAY 32 TABLE III. Levels of Flocd Protection 37 TABLE IV. Storm Damage ..... 39 OPERATOR'S INSTRUCTIONS 40 TABLE V. Interest Group Points Allocation. ....... 46 TABLE II. Total Interest Group Land Ownership (Acres) • . 47 in " v AN INTRODUCTION TO SIMOLATION/GAHES Simulation/games have been widely used in nany disciplines to represent the complexities of multiple decisions under conditions of uncertainty. They have been used in military training excercises for over 150 years, in business management training for over thirty years, and in urban planning for over fifteen years. Through deliberate abstraction of a problem to it*s basic elements, simulation/games allow participants of widely varying backgrounds to gain an overview of the problem being considered which can clarify and broaden their perspective when they are faced with similar though more detailed issues in the "real world." In addition to providing an overview, games also collapse time, thereby enabling a player to see the effects of decisions over many years in the course of a few hours of play. Most simulation/games consist of three principle elements plus a variety of artifacts in written, mathematic, graphic, or physical form whose purpose is to record or convey information to players. The first principle element is the Scenario - the data and description of the time and place being represented in the game. The second element is the R ole s - the primary actors in the game including descriptions of who they are, what their relative interests and strategies may be, and what their status is at the beginning of the game. The third element is some form of A cco unting S yste m - which records the decisions of players and determines what impact they have on the scenario and the roles. The accounting system must also feed some or all of this information back to the players on a regular basis as a guide to future decision making. Host games are played over a series of time periods called "rounds" approximating some amount of time in the "real world" ranging from hours to decades. Similar activities usually take place each round with players making more rapid and sophisticated decisions in later rounds, as they become more familiar with the game and it § s rules. The first round is often very confusing since players must learn to understand both the mechanics of the game and the factors influencing their decisions. In later rounds confusion over rules and game mechanics dissipates while the complexity of decisions may increase due to the increasing sophistication of the players plus the increasing effect of decisions accumulated from previous rounds. Simulation/games can be reasonably accurate representations of the "real world" situations they depict but their outcomes should not be interpreted as predictive of how real events are likely to turn out. Simulaticn/games are merely representations of how various components interact. The assumptions of the persons designing them plus the decisions of the players themselves strongly effect the outcome. Such an outcome represents at best only one of many possible worlds which could emerge in the "real world" system being modeled. Thus all simulation models, regardless of their complexity can never be anything more than instructional devices allowing us to observe and experiment with possible futures. OVERVIEW PURPOSE: PAGAN attempts to provide an understanding of the 4 conflicting interests involved in developing a flood hazard management program. Based on case study materials, the game requires players to try to resolve the conflict between advancing their own interests through acguiring more property and points (currency) and protecting their own and the community's interests through providing an adequate level of flood protection. GAME STEPS: The game is played in successive rounds, each of which consists of six steps that take place over a time period representing five years. During each round, players are exposed to varying size storms or hurricanes and must consider the resulting costs of disasters that arise through their own activities, the activities of their neighbors and Acts of God And Nature. The steps are: 1) W eat her — Establish the amount of damage which has occurred through storms, hurricanes and floods during the previous five years; 2) Points-- Establish the points (currency) earned by each player; 3) Taxes — Local governments assess and collect taxes; **) Develop ment -- Individual players develop or purchase << additional units of land; 5) Protection — Local government establishes the desired level of flood protection; 6) Local Government Actio n — Referendums, elections, and public meetings to establish future strategies to complete passage of floodplain ordinances, and to elect new local officials if necessary. SCENARIO: The action takes place in Hampton County and it's two cities of Oakton and Hamilton Beach. The county's population is around 103,000 with 48,000 living in Oakton and another 15,000 within the seaboard resort community of Hamilton Beach. The entire area is subject to periodic damage from storm tides and winds at known probabilities. The degree of damage sustained is determined by the severity of the storm, the type of development, and the level of hazard protection provided. Players may influence the level of hazard protection and the degree of community development by investing points towards either or both of these options. Points received in later rounds depend upon how well the interests of each team were met in earlier rounds. ROLES: The two cities and the county are made up of wards or townships, each of which in turn contains a number of interest groups represented by assigned game roles. Interest groups vary among the v different areas but generally consist of Low Income Households, diddle Income Households, Upper Income Households, Local Business, Local Conservationists, Agriculture, Local Government elected by the players in each ward or township, and representatives of the Federal Emergency Management Agency (FEMA) • Each ward or township is seated at a separate table with the three communities located in different parts of the rocm or in separate rooms. The central task facing each community individually and as a group is to reach an agreement among diverse interests on the type of growth desired and the degree of hazard protection to be provided. Cooperation among wards, interest groups, and communities is encouraged but is hampered by problems of communication, differing interests and differing perceptions of the problems faced. ACCOUNTS: The basic variables in PAGAN are 1) the amount of land of a given type controlled by each player; 2) the amount of damage that land receives each round; 3) the number of points each player receives as a result of land holdings and damages; 4) the tax rate set by local governents; and 5) the level of damage protection provided. Both players and the game operator keep records on the levels of these five variables during play and their figures are reconciled each round when PAGAN Points are paid out. HAflPTON COUNTY DESCRIPTION Hampton is a coastal county located on a peninsula between the Atlantic Ocean and the Coral Biver. It's terrain consists primarily of sandy ridges, sandy loan plateaus, and swampy areas on typical Carolina bays. Land elevations range from sea level to as much as seventy five feet, with a series of dunes and bluffs extending along most of the county's Atlantic coastline. A narrow band of barrier islands extends along the coastline, shielding the intercoastal waterway from storm and wave effects during all but the most severe storms. The county contains only two cities, Oakton which is located on the bluffs overlooking the Coral River and Hamilton Beach which occupies one of the larger barrier islands and is primarily a resort community. The population of Hampton County was 80,000 in 1970 and 103,000 in 1980. Less than 50% of this population (48,000) lives in Oakton with another 15, COO (25,000 summer) persons in Hamilton Beach and about 6,000 persons living in six small outcounty villages. The remainder of the County's population lives in low density residential areas clustered primarily on or near shorelines and on farms in the county's agricultural areas. Since 1970 population has increased at a steady rate of 2-3% per year, with much cf the new development occuring in rural areas and along the coastlines. Currently about 11% of the county's total land area is developed for urban or industrial uses, about 21% is under agricultural cultivation, and the remainder consists of forest, water, wetlands, and vacant land. The climate of Hampton county ranges from hot and humid in the summer to cool in winter. Mean annual precipitation is 54 inches while the average wind velocity is 9 m.p.h. Hampton county is subjected to occasional storms and hurricanes and their associated wind and flood damage. During extreme tides and storm surges most of the barrier islands and beaches are overtopped to such an extent that ocean waves pass directly into the intercoastal waterway, effecting mainland shores, estuaries, and coastal streams. Storm surges and high tides also move up the Coral River and it's tributaries, effecting the city of Oakton and it's environs. Observed high water marks and tide gauge records indicate that ocean tides higher than five feet have occured six times since 1954. A hurricane (winds greater than 73 mph) can be expected to strike Hampton county one year in twenty while a great hurricane (winds greater than 125 mph) can be expected to strike one year in fifty. Storm surges and floods rising well above the 10 foot contour line can be expected one year in a hundred. Floods above the 20 foot contour line have never occured and are considered impossible locally due to the estuarine character of the area. Hampton county has recently entered the Regular National Flood Insurance Program at a minimum level of protection (Level II, Table III). This means that land owners will be reimbursed for 50% of the 4 damage incurred from storms, hurricanes, and floods. This insurance will not cover damages from a second occurence unless the community increases its level of protection prior to the next storm. A recent land use analysis which focused on development suitability of county lands found that nearly 50% of Hampton county is unsuitable for other than agricultural development, and that much of the remainder shculd be developed only with extreme caution. Recently adopted land use regulations have begun to implement this study"s findings, but resistance on the part of several County Commissioners who feel that such regulations will stifle needed economic growth within the county has prevented further regulation of land uses. The fact that the land use study singled out shoreline properties as being most hazardous has caused particular problems, since much of Hampton County's recent growth has involved the construction of low density residences and high rise condominiums on these types of sites. Because of this new development along the river banks and coastlines of Hampton county the level of damage from another major hurricane like that of 1952 is expected to increase substantially. Many of the residences and businesses which were heavily damaged or destroyed in 1952 have been rebuilt in the same places, and the large numbers of newly developed residences within the five to twenty foot contours pose a constant danger of massive damage and dislocation of county residents. Some beach nourishment and refurbishment programs are currently in effect using federal monies, but Hampton county is essentially without any current hazard management or flood protection programs at this time beycnd meeting the minimum NFIP requirements. In addition to Oakton and Hamilton Beach, the county is made up of the four rural townships of Anne, Beauregard, Charles, and Desmond. Each township and each city elects one representative to the County Commission for a two round period resulting in a total of six County Commissioners setting county policy. Anne Township lies west of the Coral River and its northern fork and is made up largely of agricultural holdings with a few residential areas above the twenty foot contour. Its population is made up of agricultural interest groups plus low and middle income interest groups. Due to their inland position plus the lack of any development other than agriculture below the 20 foot contour, residents have been totally indifferent to previous local efforts at flood control. (Low and Hid Income, Agriculture, and Conservationists) Beauregard Township lies north of Oakton and the North Coral River and west of Highway 21. The area contains over 40% of the agricultural lards in the county together with three moderate sized villages containing some commercial and industrial developments. Host developed areas lie above the twenty foot contour although the Northernmost village lies just above the ten foot contour close to the banks of the North Coral River. Its population is made up of low and middle income interest groups, commercial interests, and agricultural interests. As the township most likely to profit from continued industrial and commercial expansion of the county, most residents of Beauregard Township favor continued growth and development while their major concern fcr flood hazard management programs has been to maintain a strong positive image of the county in order to impress potential investors. (Low and Mid Income, Agriculture, Business and Conservationists) Charles Township occupies the northeastern coastal part of the county , excluding the City of Hamilton Beach. The area is sparsely settled except fcr a fishing village in the north and a small group of middle class retirees on Wilton Island. The area is frequently severely damaged by ocean storms. Hurricane Agness resulted in total loss of almost all structures in the township but caused no deaths. Both the low and middle income interest groups actively oppose most flood hazard prcgrams as a threat to their livelihood and way of life as well as another example of Washington Socialism. Conservationists among the middle class residents of Hilton Island favor some form of government intervention, however, in order to prevent unbridled speculation and despoliation of beach front properties. (Low and Hid Income, and Conservationists) Desmond Township lies south of Oakton along the coastal and estuarine marsh area. lower lying parts of the township are subject to frequent flooding and local residents have been vociferous in their demands for better flcod control and lower flood insurance premiums. Particularly hard hit have been the middle class residents along the Coral Fiver flats in the south and on Duffy's Island just offshore. A recently completed high rise apartment project was placed just above the ten foot contour in order to placate these concerns. The fifteen story building is guaranteed to be completely floodproof and commands a striking view of the river mouth and the Atlantic Ocean. Lower Income residents live in the 1950's subdivision constructed on high ground just south of Oakton and work in industries and commercial establishments located in Oakton. The middle class in the other two localities are irade up of a combination of retired persons and middle management personnel from Oakton industries. Although politically conservative they are strong opponents of continued growth. They support the local conservationists to a limited extent since both groups tend to favor limiting growth and greater flood protection. (Low and Kid Income and Conservationists) TABLE I. COMMUNITY LAND USE IN ACRES Land Use Type Oaktoo Hamilton Beach | Hampton County Low density residential High density residential Commercial Industrial ....... Parks and playgrounds Agriculture Vacant 2600 480 480 480 160 1280 3000 Total 8500 total square miles . • • 13.28 520 120 80 40 160 1120 20 40 3.19 7320 880 560 720 960 21760 73400 105600 165.0 TABLE IIA. INTEREST GROUP LAND OWNERSHIP (Acres) T Hampton County Towns Interest Group 1 r A B C D i I Lo Inc. 160 640 960 480 Mid Inc. 160 960 320 800 Hi Inc. Bus. . . 200 Conser. 160 120 120 240 Agric. . 11520 8960 TOTAL . 19680 10880 1400 1520 OAKTON CITY DESCRIPTION Oakton is the principal city of Hampton County lying on the East bank of the Southeastward flowing Coral Biver 26 Biles upstream from the Atlantic Ocean. The Atlantic shoreline, however, is only about 8 miles to the East. The city is roughly bounded on the north by Scott Creek and on the South by Barney Creek, both emptying into the Coral Piver. The original city was located on bluffs above the Coral River and its surrounding floodplains and marshes. Continued expansion during the past century has resulted in substantial development in lower lying areas along the Coral River and the creeks. Average annual rate of population growth has been less than 1.0% over the past three decades and is expected to remain at that low rate indefinitely unless one of several new industries currently being sought by local business and government officials should decide to locate in Oaktcn. The 1980 population has been reported to be about 48,000 persons, up slightly from the 46,000 reported in 1970. Very little development has occured within the five foot contour at any time but substantial growth between five and twenty feet has occured over the course of the last three decades. In particular, the areas below the bluffs along the Coral River are filled by industrial and high density residential developments. A hurricane (winds greater than 73 mph) can be expected to strike the area on the average of one year in twenty while a great hurricane (winds greater than 125 mph) can be expected to strike one year in fifty. Flood carnage over the last three decades has amounted to several hundred thousand dollars in property damage every two to five years, although local officials expect these amounts to increase due to both inflationary effects and due to greater development below the ten foot contour. The great hurricane in 1952 resulted in seven local deaths, 1500 families left homeless, and over one million dollars in property damage. This was the hurricane which provided storm surges of eight feet above sea level in Oakton. Storm surges of greater than 10 feet above sea level but below 20 feet can be expected one year out of every hundred. Heavy local rains sometimes also produce flooding of local creeks although this effect is minor due to the estuarine character of the area. Other than channelization of parts of James Creek, no important flood control measures have been initiated in the area. Oakton entered the Regular National Plood Insurance Program a few years ago with a flood plain management program at the Medium Level of Protection (Level III, Table III) . This means that land owners will be reimbursed for 503? of the damage incurred due to floods, hurricanes, and storms for all occurences. Resistance to these ordinances has been minimal thus far due priaarily to low growth and development pressures. Resistance to the existing ordinance might be expected to increase if the growth rate of the area were to increase dramatically. The First Ward lies along and below the bluff and consists of lower income households at low densities along the river, an older industrial section along the river and moderate income apartments and tovnhouses along the bluff above the 20 foot contour. The areas along the river are subject to annual floods of one to three feet but ' the low income residents are suspicious of attempts at flood control since it «ay force them frcm their homes, most of which are owner occupied. Damage to either residential or industrial areas is usually slight due to the relatively low investment contained in most of these structures. (Low and Middle Income, Business) The Second Ward consists of a comparatively modern industrial and dock area along the river front and Barney Creek backed by a high quality residential development along the lowlands of Barney Creek. Comprising middle and upper income people, this recently built up area contains both single family homes and a large group of apartments, and condominums just south of Barney Creek below the 10 foot contour. Residents of the ward are largely uninformed about flood control measures and seerr unaware of the high flooding potential of their neighborhood. A number of persons in the area are strong supporters of conserving the pleasant green areas and willows along Barney Creek. (Mid and Hi Income, Business, and Conservation.) The Third Ward occupies most of the downtown business district, a strong middle class low density residential area to the north, plus a group of twenty year old apartments along highway 101 and the edge of the bluff. The population is predominantly conservative and business oriented and is generally opposed to efforts at flood control since it seems only likely to benefit the "riff raff 1 ' along the river and the newer rich folks out along Barney Creek. Ward Three has no immediate flooding problems of its own since it is primarily located above the 30 foot contour. (Mid Income and Business) The Fourth Ward contains the newer developing and still undeveloped sections to the north of the downtown business district and consists largely of the valleys created by Scott and James Creeks. Housing tends tc be primarily lew density residential and lower income including a number of mobile home parks. The small area of higher density residences near the CBD consists of elderly and lower income rent subsidized housing. One of the city's most treasured parks, Burbank Park, is found along James Creek extending into the Fifth Ward. A few residual farms are still in operation along the outskirts of the built up area and an older agricultural village now within the city limits lies at the extreme eastern edge of the ward. (Low and Mid Income, Business, Conservationists, and Agriculture.) The Fifth Ward resembles the Fourth, consisting of residual agricultural developments on the periphery plus lower income housing of both densities near the CBD and along the banks of James Creek including the upper half of Burbank Park. A few business holdings are also found along the eastern edge of the CBD. The outlying village at the intersection of highways 17 and 40 has become a stylish close-in bedroom community of middle income people living in restored colonial housing. (Low and Middle Income, Agriculture, Business and Conservationists) 10 TABLE I. COMMUNITY LAND USE IN ACRES Land Use Type Oakton Hamilton Beach | Hampton County H Low density residential High density residential Commercial . • Industrial ....... Parks and playgrounds Agriculture Vacant .. Total , total square miles . . . 13.28 2600 520 7320 460 120 880 480 80 560 480 40 720 160 160 960 1280 21760 3000 1120 I 73400 8500 2040 105600 13.28 3.19 | 1 165.0 TABLE IIB. INTEREST GROUP LAND OWNERSHIP (Acres) 1 Interest Group r Oakton Hards Type I II III IV V Lo Inc. 120 800 200 Hid Inc. 160 320 720 400 200 Hi Inc. 160 Bus. • • 160 440 240 40 80 Conser. 40 40 80 Agric. • 640 640 TOTAL . ! 440 960 960 1920 1200 11 HAMILTON BEACH CITY DESCRIPTION Hamilton Beach is a small resort town located on the barrier island of Berwick on the South Atlantic coast. A complex series of dunes , reefs, and beaches provide recreational and scenic attractions for summer residents and visitors, while traffic along the intercoastal waterway between the barrier islands and the mainland coastline provides some year round employment and business. Much of the town is located on dunes overlooking the white sand beaches of Hamilton Bay, while an assortment of hotels, summer homes, and cottages line the island's Atlantic shoreline. The island can be reached by the Alexander bridge at it's Southern end, or by the Hamilton Beach ferry at it»s Northern end. The town of Hamilton Beach is small, ranging in size from about 15,000 permanent residents in the winter to over 25,000 residents at the height of the sumoer tourist season. Since 1970 the population has grown steadily but slowly. Though some local businesses exist on the island, most residents do much of their shopping and other errands in Oaktcn, which is substantially larger and only about five miles away. As the second largest city in Hampton County, Hamilton Beach plays an important role in Haapton county politics, serving as a meeting center and rallying point for residents and homeowners up and down the Atlantic coastline. While the ten thousand or so summer residents cannot vote directly in local elections, their presence is approved and their interests play an important part in local political S decisions. Hurricanes strike about one year in twenty, causing 50-70% destruction of all structures. Great hurricanes occur about once every fifty years and result in substantial destruction of the community. Loss of life and property damage over the past twenty years has been ffininal due to the absence of any hurricanes. Total inundation of the island is to be expected in most major storms. Despite the dangers of an occasional hurricane, most residents are unwilling to support local or county government actions to limit development or to restrict construction to hurricane and flood resistant types of development. Such activities are viewed as "socialist" and are not supported by the general populace. Hamilton Beach enrolled in the National Flood Insurance program in 1979. They have not yet entered the Regular Phase of the NFIP but their Flood Insurance Study has been completed and local officials are presently considering adopting floodplain management regulations to meet the reguirements of the Regular Program requirements of the NFIP (Level II, Table III) • As such, property owners in Hamilton Beach are entitled to 50% reimbursement for damages sustained for one occurence only. Subsequent damages will not be covered by insurance unless the community enters a regular program at a higher level of protection. land uses are predominantly residential, with low density residential uses in the majority. A small amount of land is used for V\\\ high density residences and even smaller amounts are used for ' commercial and public facility purposes. The beaches themselves are 12 either publicly cr commercially owned with a 160 acre park providing some developed public access. Except for minor repair facilities no industrial development of any kind exists. Ward One is made up of the older residential and commercial centers around the old "ferry village at the northern end of the island. Residents and interest groups are primarily middle income and business in orientation. (Hid Income and Business) The Second Ward is the middle of the island and contains middle income residents along the beaches and lover income residents along the back bay. (low and Hid Income) In the Third Ward at the southern end of the island residences are newer and more exclusive including a series of ten story apartment buildings. Residents are primarily "summer folks" of upper income status with a sprinkling of middle income residents in some of the older "cottages." A fairly strong conservation group is active in this ward, concerned primarily with preserving the 160 acre Ocean Front Park located here. (Hid and High Income and Conservationists) TABLE I. COHHUNITY LAND USE IN ACRES land Use Type Oakton Hamilton Beach | Hampton County Low density residential 2600 High density residential 480 Commercial 480 Industrial • 480 Parks and playgrounds • 160 Agriculture 1280 Vacant 3000 Total 8500 total sguare miles . . . 13.28 520 120 80 40 160 1120 2040 3.19 7320 880 560 720 960 21760 73400 105600 165.0 TABLE IIC. INTEREST GROUP LAND OWNERSHIP (Acres) 13 Interest group - 1 ■ ■ Hamilton Beach Wards Type 1 ■ I II III l Lo Inc. 80 Bid Inc. 160 200 80 Hi Inc. 120 Bus. . . 120 Conser . 160 Agric. . TOTAL . 280 280 360 14 POIF DESCRIPTION - FEMA OFFICIALS (1 Team) As employees of the Federal Insurance Administration you have two primary responsibilities relating to the residents of the area. 1« You will administer flood insurance payments to property owners who sustain damage as the result of a flood. Payments will be conditioned as follows: a) The Community oust be enrolled in the National Flood Insurance Program. At the start of the game all ccirmunities are in the NFIP program. However, they do have the option to drop out if they choose. b) Property cwners from eligible communities must request payment on the appropriate forms (available only from FIA officials) indicating they have in fact purchased a flcod insurance policy. c) For the first flood you will pay all eligible property owners who request reimbursement 50% of the total damage sustained. d) If, in subsequent rounds of play, property owners again sustain property damage you may not provide any reirabursement unle ss the community in which the property Q*L£Z lives has adopted Flood Prot ectio n Level III or ]Li3h££« If the community has adopted the appropriate level of flood protection, you may again reimburse property owners 50% of total damages sustained. 2. You may provide technical assistance to local communities upon request. In order tc accomplish your tasks most effectively, you may want to appoint certain FIA officials to handle Flood Insurance and others to provide technical assistance. 15 t> APPLICATION FOB NATIONAL FLOOD INSURANCE PAYMENT Name/Bole: Location: Round: Land Use Type: No. Acres Damaged: Value (Acres Damaged/40) : Business Value (Acres Damaged/20) : Amount Reguested (Tc maximum of 50% of damage: Amount Awarded: $ Reguest Denied: (explanation) (Signature of FIA Official) APPLICATION FOP NATIONAL fLOOD INSURANCE PAYMENT Name/Role: Location: Round: Land Use Type: No. Acres Damaged: Value (Acres Damaged/40) : Business Value (Acres Damaged/20) : Amount Reguested (To maximum of 50% of damage: Amount Awarded: $ Reguest Denied: (explanation) (Signature of FIA Official) 16 ROLE DESCRIPTION - LOCAL GOVERNMENT (1-3 Teams) As elected officials you are responsible for the health and safety of your constituents as well as maintaining a stable and efficient community. The issues of community growth, flood and hurricane protection, and the management of frictions between other community groups are your foremost concerns, though other goals may also guide your decisions. Your performance will be judged by your constituents in an election at the end of every second round. local government has 6 basic powers: a) . You may collect taxes on the PAGAN points received by residents of your jurisdiction. The initial rate is 10% and it may b€ increased to as much as 40%. If Flood Protection Level V is passed it may reach 50%. The new tax rate must be announced at the end of each round or it is assumed to remain the same as in the previous round. b) . You may place reasonable restrictions on new development by zoning certain areas within your jurisdiction for limited kinds of land uses or for no development at all. You may modify tie existing reguirement for "balanced" development by requiring developers to provide 40 acres of parkland in addition to the reguired 40 acres of commercial development to accompany each 240 acres of residential development. New construction reguires a building permit signed by local government, but refusal to sign a permit must be justified on the basis of a zoning decision placed on an official zoning map and announced at least one round prior to the refusal to sign. Developers may sue for triple damages if they feel the refusal to sign is arbitrary and capricious. Such suits will be adjudicated by the game operator. c). You should propose a level of flood protection which accurately reflects the interests of your constituency. Representatives of various wards should be sure they maintain contact with constituencies they represent. D) . You may enact any of the five levels of Flood Protection Programs described elsewhere provided that you meet the necessary costs and other reguirements listed. d) . You may have 5 minutes at the end of each round (just before the election in even numbered rounds) to make public announcements regarding your programs, policies, zoning changes, tax rates, etc. You are advised to avoid letting this period turn into a public hearing or the 5 minutes allotted will be guickly used up. Any government or any group of 5 players may petition the game operator for a 10 minute public rearing once each round. • 17 f). You nay buy land from other players at the current market rate. If Level V Protection has been enacted you also have the power to condemn land in High Hazard Areas for subsequent purchase by local government. g) . Tou may assess each interest group an emergency levy of one point whenever a storm of hurricane severity or greater occurs to a community at less than a Level IV Protection Level. These funds are to be used to provide emergency assistance to those interest groups most severely hurt by the storm. In order to accomplish your objectives and use these powers effectively it is suggested that you appoint one of your members to each major task, e.g., tax collector, building inspector, flood Protection director, and a chairperson to call meetings and deal with the public. If you wish, you may "hire" persons from the community to perform some of these tasks, paying them 1 or 2 points per round. D 18 DEVELOPMENT PERMIT DEVELOPMENT PERHIT Location Height Land Use No. Acres Location Height _ Base Cost Developer Surcharge Approved DEVELOPMENT PERMIT Location Land Use Height No. Acres Base Cost Developer Surcharge Approved DEVELOPMENT PERMIT Base Cost Land Use No . Acres Developer Surcharge Approved DEVELOPMENT PERMIT Location Height _ Base Cost Sur charge L and Use No. Acres Developer Approved DEVELOPMENT PERMIT Location Land Use Height Nck Acres Base Cost Developer Surcharge Approved DEVELOPMENT PERMIT Location Land Use Height No. Ac res Base Cost Developer Surcharge Approved . DEVELOPMENT PERMIT Location Height Base Cost Surcharge Land Use No. Acres De velope r Approved DEVELOPMENT PERMIT Location Height _ Base Cost L and Use No. Acres Developer Approved _ Sur charge DEVELOPMENT PERMIT Location Height Base Cost Surcharge _ Land Use NOj_ Acres __ Developer Approved Location H eight _ Base Cost Surc ha rge L and Use No. Acres Developer Approved 19 ROLE DESCRIPTION - COHKONITY BUSINESS (1-7 Teaas) Players represent a specific interest group in each ward or township. They say play their role independently or they may combine forces with other players from the same district, the same interest group in other areas, or on any other basis that seems appropriate. As local business people you are interested in continued community stability and growth. A larger and more prosperous community will result in larger sales and service revenues, and in most instances the community business group has strongly supported new development. Ic addition to growth the business group must also address issues of disaster preparedness and flood protection, balancing the cost of these programs against the costs of development and the possible negative effects of restrictions on where new development may occur. These restrictions are explained in the LEVELS OF FLCCD PROTECTION descriptions. Business interests are locatedin every Ward of Oakton, in Beauregard Township, and in Hard I of Hamilton Beach. As local business people you may undertake new developments in the community. Vacant land may be purchased from the game operator and "developed** at a cost of 10 PAGAN Points per 40 acre unit. The cost of development of parkland or agricultural land is only 3 points per 40 acre unit. Each developement undertaken, however, must be "balanced" in terms of the mixtures of new land uses provided within the same municipality. A "balanced** mixture of land uses is defined as six 40 acre units of residences and one 40 acre unit of commerce or industry. Local government may enact legislation requiring 40 acres of parks and open space to accompany each "balanced" development. No development may be undertaken without a buildng permit signed by the appropriate local official. It is the responsibility of such officials to insure that additional local requrements for "balance" have been met. Newly developed residential units may not be operated by Business players. They Bust be "sold" to other players representing Residential interests in that ward or township. The purchase price is whatever price can be agreed upon by the two groups of players involved. Commercial or Industrial developments may be retained and operated by the developer or may be sold to another group of business interests. No business property is considered in operation until the Residential units developed with it have been "sold" to legitimate Residential interest groups. Parks and Open Spaces developed in such a package becoie the property of the local municpality with point benefits going tc the local Conservationists. Each group of players will take fifteen minutes at the start of the game to establish their roles. We ask you to be imaginative and to fill in the role you have been assigned with a variety of personal and professional information which you will create. As you describe yourself to the other people in your group (ward) you will want to describe: 20 1) your fasily; 2) your hobbies; 3) your specific profession (i.e., if you are a business interest, what type of business do you operate.); and 4) the roles you have played in the community (both govermental and non-governmental). CURRENT STATUS FORM - BUSINESS *"" ' ■ ■■ H II City or County: Date of Run Hard or Township: Name of Player ■ ■ .. -. --■ BASIS Bd. 1 Status Rd. 2 Rd. 3 Rd. 4 DEVUOPET ACRES YIELD at 2Pt/40 STORM DAMAGE . POINTS RECEIVED NEW DEVELOPMENT LOCATICK . . COST .... POINTS SPENT . FINAL BAIAFCE . TOTAL DEV. ACRES This is your score sheet which you will use to calculate your points durinq each round. Please note that points are the equivalent of currency for the purposes of this game. : >) 21 The total number of points allocated to your role at the start of round one is indicated on line 2. This total will remain constant throuqhout each tound regardless of the number of players assigned to each role. Don't worry if you're a bit confused. This accounting system will be fully explained before the start of the game. 22 HOLE DESCRIPTION - LOW INCOME HOUSEHOLDS (1-8 Teams) Players represent a specific interest group in each ward or township. They nay play their role independently or they may combine forces with other players from the same district, the same interest group in other areas, or on any other basis that seems appropriate. As low in community growth At the same t restrictions on demolition of property is loca supporting floo developing furth holdings and y relocation assis protection prop I, IV, and V of of Hamilton Beac come households you are and flood damage on yo ime flood protection new construction an buildings in the flood ted in lowlying areas d protection measures er and which may even r cur iole in the game, tance as the price for csals. Low income h akton; in every townshi h. concerned about the impacts of ur portions of the community. proposals frequently emphasize d possible relocation and plain. Because so much of your , you should be careful in that may prevent you from esult in elimination of your It might be advisable to demand your support of various flood ouseholds are located in Wards p of the County; and in Ward II Each group cf players will take fifteen minutes at the start of the game to establish their roles. we ask you to be imaginative and to fill in the rcle you have been assigned with a variety of personal and professional information which you will create. As you describe yourself to the other people in your group (ward) you will want to describe: 1) your family; 2) your hobbies; 3) your specific profession (i.e., if you are a business interest, what type of business do you operate.); and 4) the roles you have played in the governirental and non-governmental). community (both This is ycur score sheet which you will use to calculate your points during each round. Please note that points are the equivalent of currency for the purposes of this game. The total number of points allocated to your role at the start of round one is indicated on line 2. This total will remain constant throughout each round regardless of the number of players assigned to each role. Don't worry if you*re a bit confused. This accounting system will be fully explained before the start of the game. - 23 COPRENT STATUS FORM - LOW INCOME HOUSEHOLDS City or County: Date of Bun Sard or Tonrship: Name of Player ---- BASIS Rd. 1 St atus Rd. 2 Rd. 3 Rd. 4 DEVELOPED ACRES YIELD at iPt/UO STORM DAMAGE . POINTS RECEIVED KEW DEVELCPMENT LOCATIC* . . COST .... POINTS SPEV'T . FINAL BAIAFCE . TCTAI DEV. ACRES 2* BOLE DESCPIPTION - MIDDLE INCOME HOUSEHOLDS (3-12 Teams) Players represent a specific interest group in each ward or township. They may play their role independently or they may combine forces with other players from the same district, the same interest group in other areas, or en any other basis that seems appropriate. As middle itcome households you are interested in maintaining the current status of the conmunity. Issues of community growth and flood protection are important to you, but the costs associated with them may make them urdesirable or dangerous to your position. Rapid community growth opens the door to "new elements* 1 in the community which may threaten community stability and the relatively powerful position of the middle class. While increased levels of flood protection are desireable for both economic and humanitarian reasons, as major tax payers your interest group will pay a major share of the costs. The benefits to your interest group will be less than to some other groups since most cf your property holdings are already located at higher elevations. Middle income households are located in every Ward and Township in the County. Each group of players will take fifteen minutes at the start of the game to establish their roles. We ask you to be imaginative and to fill in the rele you have been assigned with a variety of personal and professional information which you will create. As you describe yourself to the other people in your group (ward) you will want to describe: 1) your faiily; 2) your hobbies; 3) your specific profession (i.e., if you are a business interest, what type of business do you operate.); and U) the roles you have played in the community (both governffental and non-governmental). This is your score sheet which you will use to calculate your points during each round. Please note that points are the equivalent of currency for the purposes of this game. The total number of points allocated to your role at the start of round one is indicated on line, 2. This total will remain constant throughout each round regardless of the number of players assigned to each role. Dcn»t worry if you 1 re a bit confused. This accounting system will be fully explained before the start of the game. 25 CUBBFNT STATUS FOBK - HIDELE INCOHE HOUSEHOLDS City or County: Date of Bun .— — Hard or Township: Name of Player !.!■»- . - —- I . BASIS Bd. 1 Status Bd. 2 Bd. 3 Bd. 4 DEVELOPED ACBES YIELD at 1Pt/40 STOBH DAHAGE . POINTS RECEIVED NEW DEVELOPMENT LOCATICK . . COST .... POINTS SPENT . FINAI BAIAflCE . TOTAL DEV. ACBES 26 ROLE DESCRIPTION - HIGH INCOME HOUSEHOLDS (0-2 Teams) Players represent a specific interest group in each ward or township. They may Flay their role independently or they may combine forces with other players from the same district, the same interest group in other areas, or on any other basis that seems appropriate. &s high icccme households you are interested in improving the overall quality cf the community without being forced to pay higher taxes. Higher levels of flood protection significantly increase the construction cost for many of Hampton County's scenic but flood prone waterfront areas, and some individuals have suggested that these higher costs may discourage individuals other than high income players from building there. One the whole, you tend to oppose community growth which might challenge your status. Seeing flood protection measures as an inhibition to growth, you tend to favor higher levels of protection cc both personal and intellectual grounds. High income households are located only in Ward II of Oakton and in Ward III of Hamilton Beach. Each group of players will take fifteen minutes at the start of the game to establish their roles. Me ask you to be imaginative and to fill in the role you have been assigned with a variety of personal and professional information which you will create. As you describe yourself to the other people in your group (ward) you will want to describe: 1) your family; 2) your hobbies; 3) your specific profession (i.e., if you are a business interest, what type of business do you operate.); and 4) the roles you have played in the community (both governmental and non-governmental). This is your score sheet which you will use to calculate your points during each round. Please note that points are the equivalent of currency for the purposes of this game. The total number of points allocated to your role at the start of round one is indicated on line 2. This total will remain constant throughout each round regardless of the number of players assigned to each role. Don't worry if you're a bit confused. This accounting system will be fully explained before the start of the game. . - 27 COFFENT STATCS FORM - HIGH INCOME HOUSEHOLDS City or County: Date of Run Ward or Township: Name of Player BASIS Fd. 1 Status Rd. 2 Rd. 3 Rd. 4 DEVELOPED ICBES YIELD at Ut/40 STORM DAMACE . POINTS RECEIVED NEW DEVEIOIMENT LOCATION . . COST .... POINTS SPENT . FINAL BALANCE . TOTAL DEV. *CFES 28 RCIE DESCRIPTION - AGRICULTURE (0-4 Teams) Players represent a specific interest group in each ward or township. They nay play their role independently or they may combine forces with other players from the same district, the same interest group in other areas, or on any other basis that seems appropriate. As farmers cultivation and agricultural Ian as a threat to y of your own f developable acre located within flood or wind da high tides. A protection propo Agricultural in Anne and Beaureg you are interested preventing the d for new developme cur cwn status but arm land at a g age. Taxes are the city limits, mage except for occ s a result you sals except for the terests are located ard Townships. in maintaining existing lands under allocation of too much vacant or nt. In general you oppose growth you are not opposed to selling some ood profit to others looking for burdensome, especially for farms Your lands suffer very little from asional soil salinization due to tend to be indifferent to flood costs and taxes they require. in Wards IV and V of Oakton and in Each group cf players will take fifteen minutes at the start of the game to establish their roles. We ask you to be imaginative and to fill in the rcle you have been assigned with a variety of personal and professional information which you will create. As you describe yourself to the ether people in your group (ward) you will want to describe: 1) your family; 2) your hobbies; 3) your specific profession (i.e., if you are a business interest, what type of business do you operate.) ; and 4) the roles you have played in the governmental and non-governmental) . community (both This is your score sheet which you will use to calculate your points during each round. Please note that points are the equivalent of currency for the purposes of this game. The total number of points allocated to your role at the start of round one is indicated on line 2. This total will remain constant throughout each round regardless of the number of players assigned to each role. Don*t worry if you're a bit confused. This accounting system will be fully explained before the start of the game. 29 CUBBENT STATDS FORM - AGBICOLT'JBE City or County: Date of Bun Hard or Township: Name of Player BASIS Bd. 1 Status Bd. 2 Bd. 3 Bd. 4 DEVELOPED ACBFS YIELD at IPt/640 STOBM DAMAGE . . POINTS BECFIVED NEW DEVELOPMENT LOCATICJi . . COST .... ECINTS SPEFT . . FINAL BALANCE . TOTAL DEV. ACBES % 30 ROLF DESCRIPTION - CONSERVATIONISTS (1-8 Teams) Players represent a specific interest group in each ward or township. They may play their role independently or they may combine forces with other players from the same district, the same interest group in other areas, or on any other basis that seems appropriate. Conservationists are concerned with the preservation of existing parks and playgrounds, the control of new development, and the maintenance of existing natural barriers and safeguards against flooding. While ycu favor the growth restraints contained in flood protection proposals, you fear that providing higher levels of protection and insurance may make some ecologically sensitive areas more available to new development. Since Conservationists are not actually property owners like other players in the game, your major activity will have to involve encouraging other players to behave more responsibly towards the environment. Such encouragement may be through persuasicn or through legislation as well as through the direct exercise of political and financial power where you have only a small amount of clout. One of your more promising strategies is to encourage more park developments in low lying and sensitive areas - paying development costs with public funds when possible but offering some of your own points in support as well. You may be able to convince your local goernment to pass legislation reguiring that developers provide 40 acres of parks and open space as part of a legally required "balanced" development package necessary for approval of building permits. Other players probably do not realize that the number of points you receive is based upon the amount of land in parks and playgrounds; whether publicly or privately owned. Since existing parkland is publicly owned, Conservationists do ret normally have to pay taxes to local government. Taxes must be paid, however, on income from privately owned parks. Conservationists are located in Wards II, I?, and V of Oakton; in Ward III of Hamilton Beach; and in all four of the County Townships. Each group of players will take fifteen minutes at the start of the game to establish their roles. We ask you to be imaginative and to fill in the role you have been assigned with a variety of personal and professional information which you will create. As you describe yourself to the other people in your group (ward) you will want to describe: 1) your family; 2) your hobbies; 3) your specific profession (i.e., if you are a business interest, what type of business do you operate.); and 4) the roles you have played in the community (both governoental and non-governmental) . 31 CURRENT STATUS fORW - CONSERVATIONISTS City or County: Date of Run Sard or Towrship: Name of Player BASIS Rd. 1 Status Rd. 2 Rd. 3 Rd. 4 DEVELOPED JCHES YIELD at Ut/UO STORH DAMAGE . POINTS RECIIVID NEW DEVELCIHENT LOCATICF . . COST ... . POINTS SPEFT . FINAL BALANCE . TCTAL DEV. 1CFES This is your score sheet which you will use to calculate your points during each round. Please note that points are the equivalent of currency for the purposes of this game. The total number of points allocated to your role at the start of round one is indicated on line 2. This total will remain constant throughout each round regardless of the number of players assigned to each role. Don't worry if you're a bit confused. This accounting system will be fully explained before the start of the game. 32 STjgS OF £LAY A normal icund is 30 minutes long with twice as much time given ♦ in the first rourd to allow players to familiarize themselves with the mechanics of the game. The end of a round is indicated by a bell, whistle, or siren indicating that the flood season has arrived. There are six steps in each round with the first two controlled by the game operator. The next 3 are controlled by players themselves and may overlap to some degree. The last step allows local government 5 minutes to make public announcements and 5 minutes to elect or re- elect city officials in even numbered rounds. STE P 1: WEATEER - The first step is to determine the amount of damage which occurred through storms and floods during the previous 5 years. Probability dice are rolled 5 times to determine the severity of the storms and the amount of damage inflicted in each year. The Flood Damage Table gives the probabilities of various levels of floods and the amount of damage suffered under various levels of protection. Damage is reported as a percentage loss to all properties in each ward. The cagritude of the loss is based upon the number of developed parcels lying within the floodplain (below the 20 foot contour) . Loses may be decreased by providing higher protection levels for already existing properties, by preventing further developments in the floodplain, and by eliminating existing properties from the flood plain. Bules (^ 1. The game operator rolls probability dice 5 times (once for each year) . The numbers on the dice will tell the game operator what level of flood or hurricane has hit the communities in each of the previous five years. STEP 2: P OINTS - The success of each team is partially reflected by the number of points accumulated. Each team starts with a specific number of points and more are collected in successive rounds. Ihese points may be used to purchase additional developments, build additional developments (Business teams only) , pay taxes, rebuild damaged properties, and influence other players through contributions, gifts, etc. Points are earned by "owning" developed land. They may be lost through natural forces such as floods (the percentage loses determined in Step 1) , or through poor financial planning. Bules 1 • Initial Pcints - Each interest group has been assigned ownership of a specific number of acres of developed land. The amount of land owned is given on line 2 of the Current Status Form provided with each role description. The location is described in the community description and is indicated on the community map. The type of development corresponds initially to the type of inerest group. 33 i) Residential interest groups receive one point for every 40 acres of undamaged residential land owned. ii) Business interests receive two points for every 40 acres of undamaged Commercial of Industrial land uses owned. iii) Conservationists receive one point for every 40 acres of parks which exist in their ward or township, although this land is usually owned by the local municipality. iv) Agriculture interests receive one point for every €40 acres of undamaged agricultural land owned. v) local officials receive points through taxation. Local officials should be careful to not confuse the public points they control with the points owned by the interest groups they originally belonged tc- Mixing the two is considered unethical. 2- Increasing Points - Additional points are earned by acguiring additioral 40 acre parcels of land. These are acquired by purchasing them from one of the Business teams at a price negotiated between the buyer and seller. Points are paid out by the game accountant during the second step of play based upon transactions completed during the previous round. 3» Decre as ing Points - Players receive fewer points if property controlled by them is damaged by floods or hurricanes in Step 1. The decrease in points received is proportional to the percentage damage received rounded to the nearest whole number of points. The percent damage to properties in each ward or township due to various types of storms is given in TABLE IV, the Storm Damage Table. In the event of a storm of hurricane severity or greater, all interest groups in communities at Less than a Level IV level of Protection must pay a one point emergency payment to local government to help defray costs of emergency assistance. **• Pl2£££iY- Damage - Once damaged by a hurricane or flood, a development is assumed to continue in the same damaged condition yielding a lower return of points unless the owner decides to repair the property. Damaged property may be repaired at a cost per 40 acre unit egual to the percentage of damage being repaired times 10 points (the cost of original contruction) . 5» Insu ra nce - Property owners in communities enrolled in the Flood Insurance Program are usually eligible for flood insurance payments providing 50^ of the value of the 34 property damage sustained. Damaged property owners Bust file a claim form with the FEMA Officials who will approve or disapprove the claim and pay the appropriate points. These points may be used for repairs or towards the purchase of new properties. 6. Accounting - Players are expected to calculate the number of points they are entitled to receive each round on the Current Status Form accompanying each role description. The game accountant will review this information each round before paying out the PAGAN points which have been earned. STEP 3: TAXES - Each city and the county is empowered to collect taxes at a level determined by local government but varying between 10* and 40% of the points earned. For the first round the tax late is set at 20% for each of the three towns. At the end of the first round each government must announce the new tax rate for the next round. Taxes due are rounded up or down to the nearest whole integer of points received at Step II of the current round. Conservationists are exempt from paying taxes on their properties. STEP Hi DEVElOEflENT - Players from Business Interest teams may develop additional groups of 40 acre parcels of land in any location provided they have a signed Development Permit from the Building Inspector of the jurisdiction where the development is to occur. Development may occur only on land currently owned by the Business Team. Rules 1. A Business Team may purchase land from the operator or from other teams at whatever price can be agreed upon. All land sales must be recorded on the Current Status Form of both buyer and seller. The buyer can earn points on developed land only if he/she represents an interest group appropriate to the type of development involved. Existing developments may be demolished at a cost of 2 points per 40 acres of land to be cleared. Building permits are issued by local government officials when they have determined that the proposed development is in compliance with local zcning regulations, the general and local reguirements for "balanced* combinations of development, and other development controls enacted locally including those reguired by approved hazard management programs. 2. A "balanced" combination of new developments is defined as six 40 acre parcels of residential development and one 40 acre parcel of commercial or industrial development. Local government may modify this "balanced" development requirement to require one additional 40 acre parcel of parks and open space. ) i) )) 35 3. The cost to develop a 40 acre parcel of land for most uses is ten points. Parks and Agricultural land costs 3 points per U0 acres. To reflect the ezistance of public services and roads, however, new development can only occur on parcels sharing at least one side with a previously developed parcel . The cost of development of a parcel may be increased by 10-35% (the development surcharge) due to construction requirements imposed by the flocd protection level currently in effect. 4. Additional pcints earned by newly developed land parcels is not paid out until Step 2 of the next round. 5. Teams may combine points with other teams in any combination that seems workable regardless of interest group designation cr location. However, one team must be clearly designated as the party eligible to receive points from the accountant for any land developed through such combinations. STEP 5_i P ROT ECTION - Local government may enact one of the five hazard protection levels listed on Table III, the Levels of Flood Protection Table. Bules 1. Local government may enact one of the five hazard protection levels, pass appropriate zoning legislation and hold these referendums which may be required to implement the new level. 2- I^ad the descri ptio ns of the f lood hazard pro tectio n l§y.els ca refully to deter mine the exact requirements for enactment. All costs and other requirements must be met or the protection level provided in the previous level continues by default. 3- Np.t§ that the costs and protections listed are cuflrulative from cjie level to the next . Only the difference between the new level and the previous level applies to either costs or benefits. 4. It is the local government's responsibility to obtain the necessary points to implement the flood protection program selected either through taxes, donations, or other sources. STEP 6^ ELECT ION - As the last step in each round, each local government is allowed five minutes to address their citizens. This would normally consist of announcements of new levels of protection provided, new tax rates, new zoning restrictions and so od and might include appeals for reelection or passage of upcoming referenda. 36 Bales 1. Following any announcements referenda may be held and in even numbered rounds an election of local officials is held. Please note that any level of flood protection beyond level II requires a referendum. If the required referendum has not already been held as a part of Step Five above, it must be held at this time. 2. Also during this period, any group of five or more players may petition the local government and the game operator for a hearing if some pressing issue has not been adequately handled or discussed. ) 37 TABLE III. LEVELS OF FLOOD PROTECTION i) 1) (All costs and change figures are relative to Level I. Actual costs and changes are the difference between current level and new level to be enacted.) I NO PPOTECTICN: Development permitted with no effort to mitigate against potential flood damages. Community chooses not to enter or remain in N.F.I. P. No flood insurance is available to local property owrers. COST TC IBPLEMENT: Points CHANGE EAMAGE EY: % CHANGE CCNSTBUCTION COST BY: Points NO ENACTMENT REQUIRED - Default condition II MINIMAL PPCTECTION: Community adopts minimum FIA regulations. New construction within the 100 year flood plain or in designated High Hazard Areas must be elevated on pilings to the 100 year flood height. New construction in High Hazard Areas must also be securely anchored and built to withstand wave action. Insurance payments will cover 75% of the losses for the first oc cu rance onl y. No coverage is provided for subseguent damages. COST TC IMPLEMENT: 40 Points CHANGE CAMAGE BY: -10 % CHANGE CCNSTBUCTION COST BY: *10 Points ENACTMENT BY ANY CITY OR COUNTY GOVERNMENT REQUIRES DESIGNATION CF HIGH HAZARD AREAS III MEDIUM PBCTECTION: Community adopts minimum N.F.I. P. requirements. New construction within the 100 year floodplain must be elevated one foot above 100 year flood levels and must be f lccdproofed. Existing structures which are not floodproofed are designated as in violation of the local building code. New construction in High Hazard Areas must be elevated to a height above maximum recorded wave heights and must be located behind primary dunes. Insurance payments will cover 75% of the losses for each occurance. COST TC IMPLEMENT: 100 Points CHANGE DAMAGE BY: -20 % CHANGE CONSTRUCTION COST BY: *15 Points CCMMUNITY REFERENDUM TO ADOPT NEW BUILDING CODE ENACTMENT BY ANY CITY OR COUNTY GOVERNMENT - IF REFERENDUM PASSES REQUIRES DESIGNATION OF PRIMARY DUNE LINE AT 5 FOOT CONTOUR 38 IV HIGH PROTECTION: Any alteration of primary protective geological structures such as dunes, beaches, river banks and bluffs is prohibited without a special impact statement approved by the county engineer, the county board of commissioners, and the governing body of the affected local jurisdiction. As in MEDIUM PROTECTION, new construction in the 100 year flood plain must be elevated 1 foot above the 100 year flood levels. County and local government coordinate in developing community hurricane evacuation plans and post-disaster recovery plans which include public acguisition of most seriously damaged properties and relocation assistance to affected residents. Insurance payments will cover "75* of the losses for each occurance. COST TC IMPLEMENT: 180 Points CHANGE DAMAGE BY: -40 % CHANGE CONSTRUCTION COST BY: *25 Points THE EVACUATION FLAN HOST BE PASSED BY THE LOCAL GOVERNMENT AND PUBLICIY FCSTED. PRIMARY GEOLOGICAL PROTECTIVE STRUCTURES MUST BE DESIGNATED EVACUATION REPUGE AREAS MUST BE DESIGNATED AND STOCKPILED REFERENDUM IN AFFECTED COMMUNITIES MUST APPROVE POLICY OF PUELIC PURCHASE OF FLOOD DAMAGED PROPERTIES. V HIGHEST PRCTECTION: Adopt a fully integrated hazard mitigation and natural resource protection program, including all of the measures described under HIGH PROTECTION above. In addition institute a permit system to regulate development on ecologically vital areas within the community, including wetlands, coral reefs, and edge zones. Begin now to acquire by condemnation and and purchase land and buildings in the most flood hazardous areas. Provide for removal of structures, restoration of area to its natural state and relocation of affected residents. Insurance payments will cover 15% of the losses for e ach occurance. COST TC IMPLEMENT: 300 Points CHANGE EAMAGE BY: -60$ CHANGE CONSTRUCTION COST BY: *35 Points HIGH PROTECTION MUST HAVE BEEN IN EFFECT AT LEAST 1 ROUND EARLIER. REQUIRES APPROVAL OF EACH LOCAL GOVERNING BODY PLUS PASSAGE OF A REFERENDUM TO BAISE THE TAX LIMIT. ALLOWS LOCAL GOVERNMENT TO RAISE TAXES AN ADDITIONAL 10% TO PROVIDE FUNTS FOR PURCHASING FLOOD HAZARD AREAS. 39 ) TABLE IV. STORM DAMAGE Percent Damage by Location, Protection Level, and Storm Severity i) PROTECTION Oakton T | Hamilton Beach| Hampton County LEVEL Wards 1 Wards 1 i Tovns I II III IV v I 1 I II III 1 i A B C D LIGHT STORMS Proh. = 0. 50, No»s. = 51-10C 1, a "good year." SEVERE STORMS. Pr ob. = 0.25, No's. = 26- "50, "a 1-' ) year storm." I 20 20 10 T 1 01 50 40 ~~T" I 50l 10 10 II 10 01 40 30 40| III 01 30 20 30| IV Oj 20 201 V 01 10 101 HTTPRICANE. Pr> Db . = 0. 15, No's. = 11 -25, an " •11-30 yea r storm." I 40 40 20 30 1 1 20| 70 60 i 1 70| 30 30 II 30 30 10 20 101 60 50 60) 20 20 III 20 20 10 01 50 40 501 10 10 IV 10 10 0| 40 30 40| V 01 ■ 30 20 301 GREAT HURRICANE. Prob.=0.08, No's.= 3-10, , a "31-70 year storm, " I 60 60 40 50 1 1 40) 90 80 1 1 901 30 30 50 50 II 50 50 30 40 30| 80 70 801 20 20 40 40 III M0 40 20 30 20| 70 60 701 10 10 30 30 IV 30 30 10 20 10| 60 50 60| 20 20 V 20 20 10 01 t 50 40 501 ■ 10 10 HOLOCAUST! Prob.=0.02, No«s. = 1-2 !, a "71-500 ye< ic storm b « I 90 90 70 80 i 1 70] 100 100 ■ 1 100| 30 40 80 80 II 80 80 60 70 60 1 90 90 901 20 30 70 70 III 70 70 50 60 50 1 80 80 601 20 60 60 IV 60 60 40 50 401 70 70 701 10 50 50 V 50 50 30 40 301 60 60 601 40 40 "» 40 OPERATOR'S INSTRUCTIONS a lar of p howev to be are dec is learn role can s elect For be pi FEMA group assig nine group NUMBER OF PIAY2I?S: PAGAN-Coasta ge variety cf players. Some app layers to be accomodated nus er, in order to decide which cf employed in the game run. lu g preferred in each role in order ions among themselves, thus impr ing potential of the game. Ha also allows for one to serve as tay "at heme" taking care cf the 1 has been designed to accomodate roximate Knowledge of the number t be available before the game, the political jurisdictions are eneral, two or even three players to force players to discuss their oving the information flow and ving at least two players in each a public official while the other special interests of the role. The total g ed official a small gr ayed involv officials. with thr ned to repr players cou , the city ame consists of 41 interest groups or roles plus 14 s in the 3 jurisdictions and a team of FEMA officials, cup of players, the City of Hamilton Beach alone could ing 7 interest groups plus 3 elected officials and the Ideally this would involve 2 players per interest ee to be elected to public office plus 1 or 2 persons esent FEMA for a total of 15-16 players. As few as Id be accomodated if 1 were appointed to each interest government, and FEMA. Other combinations of 2-3 persons per team plus the use of larger jurisdictions and combinations of jurisdictions provides a considerable range of ways in which varying numbers of players may be accomodated in varying arrangements of the game. The table below summarizes these possibilities. OPTIMUM NUMBER OF PLAYERS MINIMUM MAXIMUM HAMILTON BEACH CKLY 16 HAMPTCN COUNTY OLY 32 OAKTON CNIY 40 HAMILTON BEACH «• COUNTY 46 OAKTON AND HAMIITCN BEACH 54 OAKTON AND COUNTY 70 ALL THREE JURISDICTIONS 84 9 17 21 25 29 37 45 24 48 60 69 81 105 126 ROOM ARRANGEMENTS: A separa plus one for each governing arranged in a single large room i their geographic distribution en provided to allcw players relati tables for purposes of bargaini elected officials should be 1 respective wards and townships and accountants should be located blackboard or bulletin board. te table for each ward or township body and the FEHA officials should be n a pattern roughly conforming to the county map. Enough room must be vely easy access to each other's ng and discussion. The table for the ocated near the center of their while the table for the game operator off to the side, preferably near a If a single large room is not available, each jurisdiction played could be located in a separate smaller room. Provison for movement between rooms must be made, however, and a sngle larger meeting area 41 where all players can cone together for "community meetings" and the debrifing at the end of the game is desireable. Separate rooms for each jurisdiction usually results in lower levels of communication and cooperation between them, a situation it may be desireable to simulate in order to make plaers struggle with ways to oercome these problems. Each table and/or rocm shculd be clearly labelled with the name of the jurisdiction an ward or township seated there. EQUIPMENT: aside from paper and pencils, the only special equipment required by the game is some method of generating random numbers from 1 to 100 and some type of overlay map of the county large enough and displayed prominently so that players may refer to it in their discussions and so that changes in land uses may be recorded upon it. Probability dice consisting of a pair of icosohedrons can usually be purchased in local hobby shops. Before casting them for the players be sure they understand which die represents the tens digits and which the units digits. Usually 00 is taken as 100. If probability dice are not readily available, a table of random numbers may be found in the back of most statistics texts. another possibility is to put 20 slips of paper into a paper bag. Two slips each should be numbered from to 9. drawing two slips of paper from the bag then generates two numbers with the ist number designated as the tens digit ard the second number as the units digit. The large map of the county may be sketched fairly roughly since its major purpose is simply as a focus for discussion and to provide some location where major changes in land uses can be indicated. An overlay of acetate or other erasable transparency will allow the map to be readily changed with grease pencils. PRIOR TO P1J.Y: If possible, several days before the game all players should receive a copy of the Introduction, the Overview, the Steps of Play, a City or County Hap, an appropriate Community Description including Tables I and II, the Levels of Flood Protection Table (Table III), and the Storm Damage Table (Table IV). Specific role descriptions should usually not be provided beforehand in order to ensure that each role is filled at the time of play by assigning them only at the actual start of the game. It is preferable to assign players to their roles first and to then ask them to choose their elected representatives from among themselves at the rate of one representative from each ward to serve on the City Council plus cne representative from each city and each township to serve on the County Board of Supervisors. In this way they tend to have a clearer image of the fact that they are representing a particular constituency. If necessary, however, players may be assigned directly to local government immediately at the beginning cf play- In any event, role descriptions for local government including Building Permit Forms should be placed on the appropriate tables prior to the start of the game. 42 Enough copies of each role description to provide one for each player should te reproduced before the game. Extra copies of the Steps of Play, Storm Damage Table, Flood Protection Table, and the Community Descriptions should also be reproduced prior to play since many of the players will fail to bring their copies with them to the actual game run. Pill out a Current Status Form for each role being played and place several copies on the apropriate tables just before play begins or have an assistant pass these forms out to the apropriate interest groups while you are making your introductory remarks. Acreage figures and points for each interest group are given in the Interest Group Points Allocation Table (Table V) presented at the end of the Operator's Instructions section. A single exteriened operator can probably handle a game involving only one municipality. If inexperienced, an accountant assistant should be used for even a small game run. If two or more jurisdictions are being used in the same game, two or even three accountant assistants should be used to assist the game operator. JOBBING. PLAY - Only a very brief 5-10 minute introduction to the game should be provided prior to beginning the first round. Players usually have many questions to ask prior to play but answering them before the game often creates more confusion than help. Host questions are much better answered during and immediately after the first round of play. The introduction should consist of guickly pointing out the locations cf the various interest groups and governments, the Steps of Play, the Storm Damage Table, the Levels of Flood Protection, the maps and the Current Status Form accompanying each of the role descriptions. Players should be asked to locate their ward and their land developments on the land use map and to note the corresponding acreage figures given on the Current Status form. Players should be informed that the number of points they are about to receive are based upon the number of acres of land they own AS thei r ward or tow nshi p less a percentage equal to the amount of storm damage received in each of the last five years. The amount of land owned may be increased by the players following the procedures outlined in the Development Step of Play. Prior to the first step of play, local officials must be elected if you have not already appointed them. Allow plaers a few minutes to discuss this among themselves and then call for the election. Remind them that the position is only held for two rounds and that they will have a chance to change their choices at the end of the next round. Seme forcefulness may be called for here in order to get the election carried out quickly. Immediately fcllcwing the election and the movement of the elected players to the tables provided for their respective goernments, announce the beginning of the game with the arrival of the hurricane season. Explain the meaning and use of the dice and roll them the first time. Then refer players to the Storm Damage Table and show 43 them how the severity of the storm and the associated damage levels are deternined ty the nuibers rolled by the dice. Boll the dice four more times to represent the remaining four years and announce the total impact of storms over the previous five years in terms of the total amunt of damage accumulated. This varies by vard or tovnsip bat pointing out one or two such cases and summing the percentages is usually enough tc make players understand how the procedure works. Players should then be instructed to fill out their Current Status Forms and go to the accountant to receive their initial PAGAN Points, thus initiating the second step of play. while this is going on, the operator sould circulate among individual tables to help players to determine their total damages and complete their Current Status Forms. Seme confuson can be expected here during the first round but by the second round this step should be quite straightfoward. While individual teams are obtaining their points, turn to the FfHA officials and warn them that they should be encouraging insured teams to make insurance claims for damages sustained. Players should be informed that they may be eligible for insurance and that they should check the rules under the second step of play as well as the FEMA officials to determine their eligibility. Gradually most players will have worked themselves through the second step of the round. Pcints will have been collected and insurance forms filled out and possibly approved. FEMA officials will need some PAGAN Points to meet the claims filed. The operator should provide these carefully in order to make the FEHA officials a little cautious in approving claims. In general, the operator should provide just enough funds to meet all legitimate claims but should give the clear impression that funds will not be provided for poorly handled or spurious claims. A careful review of the claims filed in the first round is usually sufficient tc make FEMA officials behave responsibly in later rounds. While all this is happening, local government should be meeting and appointing its own officers as suggested in their role descriptions. Urge them to appoint the tax collector right away so that you can help him/her begin to collect taxes at the first round rate of 20* as soon as individual teams have collected their points from the accountant. This gets the third step of play under way and completed while steps 1 and 2 are still underway for some of the players The initiation of step 4 may reguire a little more deliberate and separate discussion, although a few teams may have already moved into this step while you have been helping others through the earlier steps. At this point, the Business Teams in particular should be advised as to how they may undertake development, purchasing land from the operator and putting together enough funds to make up a "balanced" development package. It is likely that several Business Teams may have to ccmbine resources in order to gain enough points for both land purchase and ccntruction. It may be that only part of the land purchases may be accomplished in the first round and no development will occur. 44 The operator is cautioned to exercise some care in allowing Busines Teams to buy land. Development as an option in the game is desireable and necessary for realism in competition with flood proction issues. Some players may become totally engrossed in development, however, and prevent the entire community from considering flocd protection programs. Some competition for attention and resources is desireable but the operator can and should limit such efforts by refusing to sell enough land or making the prices for land high enough to inhibit too much development. It may take two or three rounds before any developer or combination of developers will have enough funds available to put a complete development package together. while all this is going on, many players including local government should be considering the possibility of enacting higher levels of flocd protection, i.e., undertaking step 5. The operator should be ready to help explain the meaning of the various levels and to show how the amount of protection provided decreases the amount of damage shown in the Storm Damage Table. Local Government officials should be cautioned to make sure they have enough funds available to pay for the level of protection enacted and that they are aware of any referendums which may be required. Finally, the elected spokesperson for local government should be coached to prepare a statement and agenda for step 6. Announcements must be made, referenda held, and perhaps a brief public hearing allowed for. Following completion of the public hearing the operator should step in tc answer questions. After some discussion of the events in round one, the operator should point out that the players now know most of the rules and that the next round can and should proceed much more quickly. The operator then pulls out the probability dice thereby announcing the start of the next round and the arrival of the hurricane season. The second and third rounds should proceed much more quickly and with less and less need for the intervention of the operator. Players should be encouraged to get intc side discussions on the relative merits of various levels of flood protection and the ways in which it effects the community. As the third round draws to a close, it is probably time tc consider breaking off the actual play of the game and leading the participants into a more general discussion of what has happened during the game. DEBRIEFING - Individual style dictates the manner in which the debriefing is tc be held but several steps of discussion often help to lead the players out of the game and back into issues to be addressed in the real world. Some time is needed in the beginning of every debriefing to allow players to let cff steam. Ask one or two of the players to describe what they were trying to accomplish and how well they succeeded. If several jurisdictions are being played, asking for a report from each and drawing comparisons among them may be helpful. - - ») 45 After a short time, however, players should be directed away froa happenings in the game towards broader questions regarding the significance of what happened to their interest groups. Did their flood protection program work? What kinds of problems were encountered in trying to get higher levels of protection passed? Here these problems realistic? Vihich groups worked for flood protection programs and which ones were opposed? Why did they take these stands? Fairly guickly the discussion will take on its own character and lead players away from the game towards much broader discussions of flood protection issues and philosophies. At some point along here the game and the debriefing ends and the conference picks up again. In closing, thark the players for their participation. Then go buy yourself and your assistarts a couple of good stiff drinks. i> ') 46 <* CO V u o H x en a ss I < I •-» Cu E> I O I K O I I H I en i w I cs I w | B I H I H tu I H o O O © o o o « * CD 00 00 v© vO o •M * it r» fN O rn ^ *" ^» CM H CN n o O o o o O o CO 00 o sf CN O at 00 CN in 9 ^» o H o vo o o o O CN o o o ►i u ir n *■ a 4J r~ a 9 o o o o O o © o * vo o CN r~ 00 00 o a 1— o +j O o o O O o o cu \o VO vO CN 00 a •< *— T— ^ in VO 10 ^ o> X *■ •" CO o o o o © o o »o 00 CN VO VO Ul M , »" r— n <0 M * M XI y o o o o O o © id CO o 00 0) M CN CN 03 H (3 O 4J o o o o o o O r-l vO CN 00 •H «"« T- CN a M CN CN VO CN CO o O o o o o o •d > 3 O Jt a- a- CN Ul M 00 * vo +J Ad o o o O o o O rtJ M -< H H • co ••H •4 tr> H •O (0 c Ul E-» •H •H 9 o o> O fr-l S3 X n u << f (.H U U 0-H •H vu V vm o e a, H o • u o u K CO C 4J •* o o i) SB o H < U o <-* •J < o Ou a. D O PS H to tu as M H 8= M a EH u w c o o w (0 cv c •-4 w 9 CD cv jc e tr o •H o x a «->*-*»^t- in ^-^*-*- ^ r» f) m»N«Mn st it n r> m cn cn m in m o st r» ^ n en ro ^* o r- in oo nwnn or* c> vo fN r* O O O »" ^» (N ae>6o CN oo o O r- O f" (»■ •H fH H H H iH M 1 H H H c u CV C 1 H H < •O H +» C ^H O +> •O H V H U O < cr u B o U o O •o H 1 (V CO V 4J H u l» A >- U JZ CV ja * X! 1 a +> 9 u o 1 9 :r •H U 1 e o to e 0) O CO U 1 c to JC u 0) CO 1 to ►■ *> +> o V M a. +> •H H u O 93 •1-1 EC 47 t •0 (V » O r to U U o u a • a,e •o V 0) e c •H * O O Cut to cv u u »- tO cv •0 u o H OS* CV SO SO st to CV W 9 u cv a. M CV *i Qu a •H c to o O *■» Q* •* 4J .H »- O M rH CV CN CV CO «H u cv •H ** W 9 Vi CV-H CO 9 U CO 4-> CO H CV CV 9 •0 O O •H >H -H W W U CV 3 O* C5 CD «£ •o •H 4J CO CV Aorticuirutts I Rvj««,l/Vacant "- 9 ,.» "» ^ » V 1 v ' * **• > ' ! t j -glQD rt 9 > 49 1 point 1 point 1 point 1 point 1 point 1 point 51 5 WW points ^ 5 ?AQRH points ^ 10 points 10 ?AGAH points <§ I- 'JC 53 > ) PAGAN GAME BOARD (COASTAL) > APPENDIX F SAMPLE EVALUATION Appendix F > Institute Participant Please take a few minutes before leaving to fill out this questionnaire. Most of the questionnaire has been designed to be rapidly answered in check list format. Therefore, please don't be discouraged by its apparent lengthiness . The final page you may tear off and take with you for return in the attached self-addressed stamped envelope, if you feel you'd like to take more time writing in comments. (If you want to complete the last page now as well, we'd be delighted. ) Thank you very much for your participation and help and have a pleasant trip home. * 9 -2- FLOOD HAZARD MANAGEMENT TRAINING INSTITUTE INSTITUTE EVALUATION ' 1. The Regional Training Institute enabled me to: (please check the appro- priate box) Strongly Agree Agree Uncert. Disagree Strongly Disagree become better informed about the NFIP / / / / / / / / / / acquire more infor- mation regarding alternative flood hazard management strategies / / / / / / / / / / develop a better understanding of the nature of /__/ flood hazards develop a better understanding of the relationship between flood hazard manage- /__/ ment and natural resource protection / / / / / / / / / / < / / / / / / establish contact with leaders of other commnities experiencing similar problems / / / / / / / / / / f. establish contact with individuals who could provide me with technical assistance / / / / / / / / / / develop a better understanding of the importance of public participation in community flood hazard decision- making / / / / / / / / / / " -3- Strongly Strongly Agree Agree Uncert. Disagree Disagree develop a better understanding of the techniques and /_/ / / / / / / / / tools to accomplish meaningful public participation develop a better understanding of the environmental, economic, social / / /_/ / / / / /_/ and political tradeoffs of various manage- ment strategies 2. Which three institute activities do you feel were most valuable to you? 3. Which three institute activities were least valuable to you? 1 2 4. In general, how would you rate the following Excellent Good Fair Poor Comments a. program structure (format, length, /_/ /_/ /_/ /_/ timing, variety) b. program content (breadth and depth /_/ /_/ /_/ /_/ of materials covered) c. mix of participants // // // // -4- Excellent Good Fair Poor Comments n o n n o LJ o o n n n n d. speakers and panelists e. information x f. overall quality 5. Rate the Institute on the amount of time which was provided to meet your individual needs and how appropriately the time was used Much more More Just Less Waste time time enough time of required required time required time Informal exchanges /_/ Breaks between n sessions Questions & answer ~/ sessions Exercise/ relaxation/ free periods o Socializing n Making contacts n Reviewing materials/ preparing for upcoming sessions LJ Small group discussions n Plenary sessions n Institute overall LJ /_/ n n n n n / / /_/ LJ LJ LJ LJ / / /_/ LJ LJ LJ LJ n / / /_/ LJ LJ LJ LJ n / / LJ LJ LJ /_/ LJ LJ LJ LJ LJ n n 'i -5- This portion of the evaluation questionnaire may be returned in the attached self addressed envelope if you would prefer to take more time. But please mail it back. Name (optional) To assist you in writing your comments, a list of the various institute elements is presented below. Day One - Pre-Institute tutorial - Flooding & flood hazard management (film/ round table) - Nature of Flooding and Role of Ecological Resources (workshops) - Identifying natural and flood hazard data sources (workshops) - state watershed meetings Day Two - Ideal flood hazard mitigation (roundtable) - NFIP (roundtable) - Role of local & state governments (roundtable) - Role of public participation (speech) - Effective public participation (case examples/small group discussions) - Identifying opportunities and strategies (workshops) - Second state watershed meetings Day Three - Designing a community program (simulation) - Third state watershed meetings - Report and critique of state plans - Closing remarks 6. Which elements of the institute did you find most helpful and why ? 7. Which elements of the institute did you find least helpful and why ? -6- 8. Do you believe involvement of groups and individuals like yourself can make a difference in the quality of a community flood hazard management program? 9. What important positive results , if any, do you feel will result from this institute? 10. We would appreciate your ideas about ways in which possible future institutes could be designed to be more effective. (C ff APPENDIX G MODEL STUDENT MANUAL: RIVERINE % FLOOD HAZARD MANAGEMENT AND NATURAL RESOURCE PROTECTION MODEL RIVERINE STUDENT MANUAL* * Prepared by The Conservation Foundation Washington, D.C. For The Federal Emergency Management Agency This manual is based on the model training program developed by The Conservation Foundation. It should not be produced as is — but should be revised for each Institute to reflect any changes made to CF's model. • BACKGROUND This training program on Flood Hazard Management and Natural Resource Protection was developed by The Conservation Foundation for The Federal Emergency Management Agency. The program has been designed for local officials and citizen leaders as a means to increase their knowledge of: o the basic requirements of the National Flood Insurance Program; o the ways in which ecological and hazard mitigation requirements come together in establishing principles for physical management of the flood-prone areas; o economic and social coincidences of interest and conflicts with flood management goals; and o the various other federal, state, and local programs that come together on the floodplain and that could potentially lead toward more effective implementation of a community flood management program and natural resource protection program. In addition, the program is intended to focus the attention of community leaders on means to disseminate the information provided in the training program throughout their community. Those of you who are participating in the training institute for which this workbook has been prepared come from communities who face flood problems. You have been invited to participate in this program because you hold a leadership position in your community and are in a position to influence community flood hazard mitigation decisions. It is our hope that this institute will provide you with an increased awareness of flood hazards, alternative management approaches, and methods for increasing public involvement in these key community resource decisions. -2- f INSTITUTE SPONSORS FEDERAL EMERGENCY MANAGEMENT AGENCY FEMA is a new federal agency (created in March 31, 1979) responsible for the coordination of federal hazard mitigation efforts. The agency's specific responsibilities include over- seeing key emergency programs in dam safety, emergency warning systems and severe weather warnings, as well as disaster relief and community flood hazard mitigation through the National Flood Insurance Program. The central office, Training and Education Division of FEMA has provided the funding for this institute as part of a program of increased technical assistance to communities. THE CONSERVATION FOUNDATION Through research, citizen training and communication with opinion leaders in the United States and abroad, The Conservation Foundation encourages wise management of the earth's resources — its land, water, energy, air. A nonprofit organization, The Conservation Foundation designed and directed the training program of which this Institute is a part. ^_^ Q REGIONAL COORDINATOR € -3- HOW TO USE THE INSTITUTE WORKBOOK This Workbook is designed to be the principal companion of each participant attending the Community Flood Hazard Mitigation Training Institute. It contains the detailed information needed to conduct each part of the Institute program. The Program in Brief acts as a table of contents for the remainder of the book. The remainder of the workbook is organized by program element, and each program element is followed by whatever discussion questions, exercises and case example material may be necessary to work through that part of the training program. Other materials prepared for your use by The Conservation Foundation include: "Flood Hazard Management and Natural Resource Protection; Community Action Guide" and "Community Action Guide Summary . " The Training Manual contains seven separate chapters that outline in some detail the essential components of a com- munity flood hazard mitigation and resource protection program highlighting the legal, environmental, social, and political factors that affect these decisions. The manual discusses fur- ther federal flood hazard mitigation initiatives. Particular attention is given to the NFIP and community responsibilities under that program. The chapters in the Training Manual are organized to both be read as a book and to address single essential questions that could arise during a community's flood hazard mitigation planning process. If you examine the table of contents for each chapter, you may find areas you would like to read while at the training institute. The manual is designed for yor use when you return home, however. We hope that it will assist you in understanding the nature of the complex decisions that must be made to achieve flood hazard mitigation and allow you to raise the questions necessary to affect your community's choice of mitigation approaches. The Community Action Guide Summary was mailed to you before the insititute and is designed for your use before and during the Institute and in conducting public involvement activities when you return home. It summarizes the larger guidebook, outlines the goals of effective public participation, and appropriate public participation mechanisms. We hope you will take the opportunity to read through this booklet while at the Institute, as it should be particularly helpful to you in outlining follow-up activities . £ Q € -5- PROGRAM IN BRIEF DAY ONE Page 11:00 - 1:00 REGISTRATION Briefing for Discussion Leaders Location: 1:00 - 1:30 WELCOME AND INTRODUCTION Speakers : Location : 1:30 - 2:15 2:30 - 4:00 INTRODUCTION OF PARTICIPANTS Discussion Leader: Location: FLOODING AND FLOOD HAZARD MANAGEMENT IN RIVERINE AREAS: AN OVERVIEW Panel Members: Location: 4:00 - 4:45 ESTABLISHING THE GOALS OF COMMUNITY FLOOD HAZARD MANAGEMENT Discussion Leader: Location: 5:00 - 6:00 SOCIAL HOUR Location : -6- DAY ONE (continued) Page 6:00 - 7:30 DINNER Location DAY TWO 7:30 - 9:00 THE NATURE OF FLOODING IN COASTAL COMMUNITIES AND THE SPECIAL ROLE OF COASTAL ECOLOGICAL RESOURCES IN FLOOD HAZARD MITIGATION Discussion Leaders: Locations : 8:30 - 8:45 FLOOD HAZARD MANAGEMENT: THREE STORIES Location: 8:45 - 9:30 DESIGNING A FLOOD HAZARD MANAGEMENT PROGRAM: IDENTIFYING GOALS OPPOR- TUNITIES AND STRATEGIES Lo cation: f 9:30 - 10:45 THE FEDERAL AND STATE FRAMEWORK FOR COMMUNITY FLOOD HAZARD DECISION-MAKING Speaker : Panel Members : Location : 11:00 - 12:15 THE NATIONAL FLOOD INSURANCE PROGRAM: WHAT IT DOES AND DOESN'T DO Speaker: Panel Members : Location : f -7- DAY TWO (continued) Page 12:15 - 1:30 LUNCH 1:30 - 2:30 FLOOD HAZARD MANAGEMENT: ISSUES AND PROGRAMS Discussion Leaders: Location: 2:45 - 3:45 LOCAL STRATEGIES FOR FLOOD HAZARD MITIGATION: CASE EXAMPLES Discussion Leaders: Locations : 4:00 - 5:00 6:30 - 7:00 THE ROLE OF PUBLIC PARTICIPATION IN COMMUNITY FLOOD HAZARD DECISION-MAKING Speaker : Location : DINNER Location : 7:30 - 9:00 RECOMMENDATIONS FOR GROUP ACTION Discussion Leaders: Location: DAY THREE 8:30 - 9:30 ISSUES IN PUBLIC PARTICIPATION Discussion Leaders: Location : -8- DAY THREE (continued) Page 10:00 - 12:00 DESIGNING A FLOOD HAZARD MANAGEMENT PROGRAM IN RIVERINE COMMUNITIES Discussion Leaders: Locations : f 12:00 - 1:30 LUNCH Location : 1:30 - 3:00 FINAL SMALL GROUP DISCUSSIONS Discussion Leaders: Location: 3:30 - 4:30 CONCLUSION Speaker : f >, Location: f * -9- MODEL RIVERINE STUDENT MANUAL WORKSHOP ON FLOOD HAZARD MANAGEMENT AND NATURAL RESOURCE PROTECTION: THE RIVERINE SETTING DAY ONE 11:00 - 1:00 p.m. REGISTRATION 1:00 p.m. WELCOME Purpose : • NOTES: » • To establish the major objectives of the Conference. • To introduce key staff and resource people. To orient group to sequence of workshop session, time schedules, facilities, and administrative announcements. Activity: • Plenary session speaker. -10- lr 30 - 2:15 INTRODUCTION OF PARTICIPANTS Purpose ; • To introduce community participants and their communities to one another • To establish the function of the working group at the conference. Activity ; • Small group discussion sessions within plenary room. NOTES : ( Q € -11- 2:30 - 4:30 p.m. FLOODING AND FLOOD HAZARD MANAGEMENT IN RIVERINE AREAS: AN OVERVIEW Purpose : • Create participant understanding of inherent complexities of riverine flood hazard management. • To give an historical perspective to riverine flood hazard management. • To address changing directins in coastal flood hazard management in response to the perceived weaknesses of the traditional approach . Activities : • Film • Reaction Panel Discussion • Audience Questions and Answers Review Questions 1. What are the special problems of protecting the riverine floodplain? (Dynamic nature of riverine floodplain, fragility of riverine ecosystem. ) 2. What is the relationship of watershed and drainage management to riverine flooding problems? 3. What are some of the economic and social factors which contribute to the develop- ment of floodplains? 4. What are the weaknesses of traditional approaches to riverine flood hazard management? -12- 5. What are the changing directions in our f current approach to riverine flood hazard management? References ; Flood Hazard Management and Natural Resource Protection; Community Action Guide , Chapters I and II. NOTES Q £ * -13- 4:00 - 4:45 p.m. ESTABLISHING THE GOALS OF COMMUNITY FLOOD HAZARD MANAGEMENT Purpose : • To assist participants in establishing the target goals for which they will develop strategies. • To introduce participants to each other by helping them appreciate the different perspectives with which they approach flood hazard management.. Activities: » • Exercise on Goals (Exercise A attached) • Group Discussion Review Questions 1. What are the most important goals to consider in developing a community flood hazard management program? 2. How do various interest groups differ in their assessment of goals? 3. How can or should other community goals be integrated with flood hazard management goals? References : Flood Hazard Management and Natural Resource Protection: Community Action Guide , Chapter III. NOTES: » -14- Exercise A Goals for Community Flood Hazard Management Of the goals listed below, which do you feel are the four most important to accomplish in developing a community flood hazard management program? Rank/Goals 1 Minimize fiscal impact of floods. 2 Reduce erosion and sedimentations. 3 Reduce property loss. 4 Preserve natural areas. 5 Protect safety of population. 6 Reduce flood damage to public property. 7 Distribute management costs fairly. 8 Preserve open space and recreation. 9 Maintain good water quality. 10 Encourage economic development. Which of the following categories of interest groups do you most closely identify with? 1 Local officials. 2 State officials. 3 Floodplain resident. 4 Local businessman (economic interests). 5 Environmentalists. 6 Civic group member (Red Cross, church group) ( -15- 4:30 p.m. BREAK 5:00 p.m. SOCIAL HOUR 6:00 p.m. DINNER 7:30 - 9:00 p.m. THE NATURE OF FLOODING IN RIVERINE COMMUNITIES AND THE SPECIAL ROLE OF RIVERINE ECOLOGICAL RESOURCES IN FLOOD HAZARD MITIGATION Purpose : • To assist participants in identifying and understanding the causes of flooding and the nature of flood hazards in their community. • To help participants understand the functioning of important riverine eco- systems for hazard mitigation purposes. • To familiarize participants with various uses of natural resource data and maps as community planning and decision-making tools . Activities : • Six to eight concurrent small group sessions which discuss the special ecological characteristics of riverine systems. • Land Use Suitability Analysis — Mapping Exercise Review Questions 1. What are the special ecological areas commonly found within river corridors? 2. Where, within the river corridor, do they commonly occur? In what associations? 3. What role do each of these resources play in flood hazard mitigation? -16- 4. How sensitive are these resources to the activities of man? 5. How can these resources be protected? What management policies should be applied? 6. What is a meant by land suitability analysis? 7. How does such an analysis help identify flood hazard mitigation/resource protec- tion opportunities? 8. What role does resource mapping play in this analysis? 9. What type of resource and maps exist or may be available for my community? From what sources? 10. What environmental factors or values are most important in my community? 11. What is suitable map base on which to represent these factors? References ; Flood Hazard Management and Natural Resource Protection; Community Action Guide , Chapter II. NOTES : -17- * IDENTIFYING NATURAL RESOURCE AND FLOOD HAZARD DATA SOURCES FOR DECISION-MAKING • WORKSHOP MATERIALS I «- -19- BASE MAPS MAP SCALE There are three categories of base maps: planimetric, topographic, and ortho- photo. A planimetric map shows roads, structures, political boundaries, and waterways, etc. in two dimensions. It illustrates hori- zontal positioning, not the height of hills or valleys. A photogrammetric planimetric map is a planimetric map which has been prepared from aerial photographs and has been corrected so that horizontal measure- ments taken from the map accurately reflect the distance on the ground within a certain tolerance. A topographic map shows the type of information illustrated on a planimetric map plus it has contour lines to show hills and valleys of the land, drainage patterns and the steepness of slopes. A photogrammetric topographic map is a topographic map which has been prepared from aerial photographs and has been corrected so that both horizontal and vertical measurements taken from the map accurately reflect the distances and elevations on the ground within a certain tolerance. An orthophoto map is a map composed of a corrected aerial photograph on which features such as road names, place names, property boundaries, and political boundaries have been added. All the features which appear on an aerial photograph also appear on an ortho- photo map. Map scale defines the relation- ship between the measurements of the features as shown on the map and as they exist on the Earth's surface. Scale is generally stated as a ratio or fraction — 1:24,000 scale, 1 inch = 2,000 feet. Area shown, 1 square mile 1:62.500 scale, 1 inch = about 1 mile. Area shown, 6% square miles 1:250,000 scale. 1 inch = about 4 miles. b7 Area shown, 107 square miles Barbara Maire et. al, Wetlands and Floodplains on Paper (Lincoln, Mass . : Massachusetts Audubon Society, undated) 2. U.S.G.S., Topographic Maps (Washington, D.C.: Government Printing Office, 1972) H a Oh 2 O o 0< o u M o Eh O ac z o z o H s z H w Q <: a 8 < _J a. is* U> 21 FLOODPLAIN DELINEATION ON AN ORTHOPHOTO MAP o -2 3- TOPOGRAPHIC MAP SYMBOLS *) ^VARIATIONS WILL BE FOUND ON OLDER MAPS Primary highway, hard surface Secondary highway, hard surface Lightduty road, hard or improved surface Unimproved road Road under construction, almement known Proposed road Dual highway, dividing strip 25 feet or less Dual highway, dividing t , , lg 2 5 feet Trail » Railroad single track and multiple track Ra.lroads in juxtaposition Narrow gage: single track and multiple track Railroad m street and carlme Bridge road and railroad Drawbridge: road and railroad Footbridge Tunnel: road and railroad Overpass and underpass Small masonry or concrete dam Dam with lock Dam with road Canal with lock Buildings (dwell. ng. place of employment, etc ) School, church, and cemetery Buildings (barn, warehouse. Power transmission hne with located metal tower. Telephone line, pipeline, etc. (labeled as to type) Wells other than water (labeled as to type) Tanks: oil. water, etc (labeled only ,f water) Located or landmark obiect: windmill Open pit, mine, or quarry: prospect Shaft and tunnel entrance — *-<>-+_ Boundaries National State County, parish, mumcipio Civil township, precinct, town, barrio Incorporated city, village, town, hamlet Reservation. National or State Small park, cemetery, airport, etc. Land grant Township or range line. United States land survey Township or range line, approximate location Section hne. United States land survey . Section hne. approximate location not United States land survey Section line, not United States land survey Found corner: section and dosing Boundary monument: land grant and other e or field line .1 mmm » Horizontal and vertical control station: Tablet, spirit level elevation Other recoverable mark, spirit level elevation A , Horizontal control station: tablet, vertical angle elevation Any recoverable mark.vertical angle or checked elevation Vertical control station: tablet, spirit level elevat,on Other recoverable mark, spirit level elevation Spot elevation Water elevation Index contour Supplementary contour Fill Levee Mine dump ! >gs Shifting sand or dunes Sand Perennial streams s ted aqueduct Water well and spring Small rapids Large rapids Intermittent lake. Foreshore flat Sounding, depth curve Exposed v. Intermediate contour Depression contours Cut Levee with road Wash failings pond Intricate surface Gravel beach Intermittent streams. Aqueduct tunnel Glacier Small falls Large falls Dry lake bed Rock or coral reef Piling or dolphin Sunken wreck Rock, bare or awash; dangerous to navigation X 736.9 Marsh (swamp) Wooded marsh Woods or brushwood Vineyard Land subject to controlled inundation I I I I I I I I I -2 4-1 5 MILES MILE SCALE 1:62 500 UNITED STATES DEPARTMENT OF THE INTERIOR GEOLOGICAL SURVEY TOPOGRAPHIC MAP INFORMATION AND SYMBOLS MARCH 1978 QUADRANGLE MAPS AND SERIES Quadrangle maps cover four-sided areas bounded by parallels of latitude and meridians of longitude. Quadrangle size is given in minutes or degrees. Map series are groups of maps that conform to established specifications for size, scale, content, and other elements. Map scale is the relationship between distance on a map and the corresponding distance on the ground Map scale is expressed as a numerical ratio and shown graphically by bar scales marked in feet, miles, and kilometers. NATIONAL TOPOGRAPHIC MAPS Series Scale 1 inch represents 1 centimeter represents Standard quadrangle size (latitude-longitude) Quadrangle area (square miles) 7'^-minule 7VS.X 15-minule Puerto Rico 7V>-minute 15-minule Alaska 1:63.360 Intermediate U. S. 1:250.000 U. S. 1:1,000.000 Antarctica 1 250,000 . 1:24,000 1:25,000 1:20.000 1:62,500 1:63,360 1:100.000 1:250.000 1:1.000.000 1:250.000 1:500,000 2,000 feet about 2,083 feet about 1 ,667 feet nearly 1 mrle 1 mile nearly 1 6 miles nearly 4 miles nearly 16 miles nearly 4 miles nearly S miles 240 meters 250 meters 200 meters 625 meters nearly 634 meters 1 kilometer 2.5 kilometers 10 kilometers 2 5 kilometers 5 kilomeiers VfiX-Vh mm 7V : x 15 min. 7V2*7'/2 mm. 15* 15 min. 15X20 to 36 min 30X60 mm l°x 2° or 3° 4°X6° I°X3°to 15° 2°x l'h° 49 to 70 98 to 140 71 197 to 282 207 to 281 1568 to 2240 4.580 to 8,669 73.734 to 102.759 4.089 to 8 336 Antarctica 1 500.000 . . 28.174 to 30 462 CONTOUR LINES SHOW LAND SHAPES AND ELEVATION The shape of the land, portrayed by contours, is the distinctive characteristic of topographic maps. Contours are imaginary lines following the ground surface at a constant elevation above or below sea level Contour interval is the elevation difference represented by adjacent contour lines on maps. Contour intervals depend on ground slope and map scale Small contour intervals are used for Hat areas; larger intervals are used for mountainous terrain. Supplementary dotted contours, at less than the regular interval, are used in selected flat areas. Index contours are heavier than others and most have elevation figures. Relief shading, an overprint giving a three-dimensional impression, is used on selected maps. Orthophotomaps, which depict terrain and other map features by color-enhanced photographic images, are available for selected areas. COLORS DISTINGUISH KINDS OF MAP FEATURES Black is used for manmade or cultural features, such as roads, buildings, names, and boundaries. Blue is used for water or hydrographic features, such as lakes, rivers, canals, glaciers, and swamps. Brown is used for relief or hypsographic features — land shapes portrayed by contour lines. Green is used for woodland cover, with patterns to show scrub, vineyards, or orchards. Red emphasizes important roads and is used to show public land subdivision lines, land grants, and fence and field lines Red tint indicates urban areas, in which only landmark buildings are shown Purple is used to show office revision from aerial photographs. The changes are not field checked. INDEXES SHOW PUBLISHED TOPOGRAPHIC MAPS Indexes for each State, Puerto Rico and the Virgin Islands of the United States, Guam, American Samoa, and Antarctica show available published maps. Index maps show quadrangle location, name, and survey date. Listed also are special maps and sheets, with prices, map dealers, Federal distribution centers, and map reference libraries, and instructions for ordering maps. Indexes and a booklet describing topographic maps are available free on request. HOW MAPS CAN BE OBTAINED Mail orders for maps of areas east of the Mississippi River, including Minnesota, Puerto Rico, the Virgin Islands of the United States, and Antarctica should be addressed to the Branch of Distribution, U. S. Geological Survey, 1200 South Eads Street, Arlington, Virginia 22202. Maps of areas west of the Mississippi River, including Alaska, Hawaii, Louisiana, American Samoa, and Guam should be ordered from the Branch of Distribution , U . S . Geological Survey , Box 25286, Federal Center, Denver. Colorado 80225. A single order combining both eastern and western maps may be placed with either office. Residents of Alaska may order Alaska maps or an index for Alaska from the Distribution Section, U. S. Geological Survey, Federal Building-Box 12, 101 Twelfth Avenue, Fairbanks. Alaska 99701. Order by map name. State, and series. On an order amounting to $300 or more at the list price, a 30-percent discount is allowed. No other discount is applicable. Prepayment is required and must accompany each order. Payment may be made by money order or check payable to the U. S. Geological Survey. Your ZIP code is required. Sales counters are maintained in the following U. S. Geological Survey offices, where maps of the area may be purchased in person: 1200 South Eads Street, Arlington, Va.; Room 1028, General Services Administration Building, 19th & F Streets NW, Washington, D. C; 1400 Independence Road, Rolla, Mo.; 345 Middlefield Road, Menlo Park, Calif.; Room 7638, Federal Building. 300»North Los Angeles Street, Los Angeles, Calif.; Room 504. Custom House, 555 Battery Street, San Francisco, Calif.; Building 41, Federal Center, Denver, Colo.; Room 1012. Federal Building, 1961 Stout Street, Denver Colo.; Room 1C45, Federal Building, I 100 Commerce Street, Dallas, Texas; Room 8105, Federal Building, 125 South State Street, Salt Lake City, Utah; Room 1C402, National Center, 12201 Sunrise Valley Drive. Reston, Va.; Room 678. U. S. Court House, West 920 Riverside Avenue, Spokane, Wash.; Room 108, Skyline Building, 508 Second Avenue. Anchorage, Alaska: and Federal Building, 101 Twelfth Avenue, Fairbanks, Alaska. Commercial dealers sell U. S. Geological Survey maps at their own prices. Names and addresses of dealers are listed in each State index. ,n,er,or-geologica. survey reston .«o.«.»- ,,7 8 v< 009 291 31VOS XOOd 000 SI 000 01 0009 *) -25- CONTOUR LINES A contour line is an imaginery line drawn on the ground which connects points of the same altitude or elevation. The contour interval is the vertical distance (difference in elevation! separating contour lines. While contour intervals between maps may vary, on any single map the interval is constant. The horizontal spacing of the contour lines, therefore, varies with land slope. In general, the closer the contour lines the steeper the slope. Wide spacing between lines indicates more gentle slopes. When contour lines cross streams the contour is bent into a V, the V points in the upstream direction. COMPARISON OF CONTOUR INTERVALS 10' CONTOUR INTERVAL. opes 2' CONTOUR INTERVAL. Barbara Maire et. al, Wetlands and Floodplains on Paper (Lincoln, Mass.: Massachusetts Audubon Society, undated) -26- THE SOIL SURVEY v ^, Man is dependent on soils. Soils provide the habitat for plants and crops; the foundations for buildings and roads; and receptacles for domestic, municipal, industrial and animal wastes. Soil management should be a fundamental planning concern and the soil survey is an essential planning tool. The soil survey, conducted by the Soil Conservation Service, provides the basic information needed for planning including: a map depicting different soil types and a description of the properties and limitations of these soils. Of particular interest for land use planning are the soil's "engineering properties" and "engineering interpreta- tions." These interpretations indicate the suitability of areas for different uses. For example, the suitability of areas for homebuilding sites involves an evaluation of the flood hazards, height of the water table, slope of the land, shrink-swell potential of the soil and depth of the soil to hard rock. 1 The suitability of a site for septic tanks is rated according to the permeability of the soil (the ease with which water penetrates the soil) , the land slope, filtering capacity, level of the water table, and potential for flooding. ^ Additional suitability interpretations include use for highways, ponds or reservoirs, and recreation. * . Soils maps, themselves, are very useful for floodplain delineation. Soils which are deposited by running water (called alluvial soils) or soils which are frequently covered by water differ in texture, color, or structure from those which develop under drier conditions. Such soils will, therefore, have classifications different from non-flood-prone soils. Attached is a chart depicting the soil suitability interpretations and a brief description of the major soil types found on the map sheet to be used in this exercise. Those soils which have developed under wet conditions or were deposited by running water can be identified from these descriptions. By drawinq boundaries around these soil tvpes it is possible to make a rough delineation of the flood hazard area. 1. U.S. Department of Agriculture, Soil Conservation Service, Soil Survey For Wake County, North Carolina . (Washington, D.C.: GPO, 1970) 2. Ibid. -27- SOIL ASSOCIATION Creedmore-White Store Association Gently sloping to hilly, deep and moderately deep, moderately well drained soild that have a very firm clayey subsoil; derived from sandstone, shale, and mudstone. Mayodan-Granville-Creedmoor Association Gently sloping to moderately steep, deep or moderately deep, well drained and moderately well drained soils that have a subsoil of friable sandy clay loam to very firm clay; derived from sandstone, shale, and mudstone. Herndon-Georgeville Association Gently sloping to moderately steep, deep, well-drained soils that have a subsoil of friable silty clay loam to clay; derived from phyllite (Carolina slates) . Appling-Durham Association Gently sloping to sloping, deep, well-drained soils that have a subsoil of friable sandy clay loam to firm clay; derived mostly from granite, gneiss, and schist. Cecil-Appling Association Gently sloping to steep, deep, well-drained soils that have a subsoil of red, friable to firm clay loam to clay; derived mostly from gneiss and schist. Cecil Association Gently sloping to steep, deep, well-drained soils that have a subsoil of firm red clay; derived mostly from gneiss and schist. Cecil-Madison Association Gently sloping to steep, deep, well-drained soils that have a subsoil of red, friable to firm clay loam to clay; derived mostly from gneiss and schist. Appling Association Gently sloping to moderately steep, deep, well-drained soils that have a subsoil of firm clay loam to clay; derived mostly from granite, gneiss, and schist. Wagram-Norfolk Association Nearly level to sloping, very deep, somewhat excessively drained and well drained soils that have a subsoil of friable sandy loam to sandy clay loam; formed in Coastal Plain sediments. Appling- Louisburg-Wedowee Association Gently sloping to steep, deep and moderately deep, well drained and somewhat excessively drained soild that have a sub- soil of very friable coarse sandy loam to firm clay; derived mostly from granite, gneiss, and schist. -28- KEY Q **p symbol ATA AgB AgB2 AgC AgC2 ApP ApB2 ApC ApC2 ApD AsB AsB2 AsC AsC2 Au 0/> Bu CeB CeB2 CeC CeC2 CeD CeF CgB CgB2 CgC CgC2 C1B3 C1C3 C1E3 Cm Cn Co Cp CrB CrB2 CrC Mapping unit Altavista fine sandy loan, Appling gravelly sandy loar. , slopes Appling gravelly sandv loam. slopes, eroded Appling gravelly sandy loam, slopes Appling gravelly sandy loam, slopes, eroded Appling sandy loar-., 2 Appling sandy loan, 2 eroded Appling sandy loam, 6 Appling sandy loam, 6 eroded Appling sandy loam, 10 to 15 percent slopes Appling fine sandy loam, 2 to 6 percent slopes Appling fine sandy loam, 2 to 6 percent slopes, eroded Appling fine sandy loam, 6 Appling fine sandy loam, 6 eroded Augusta fine sandy loam Borrow area Buncombe soils Cecil sandy loam, Cecil sandy loam, Cecil sandy loam, Cecil sandy loam, Cecil sandy loam, to U percent slopes- 2 to 6 percent 2 to t> Dercent 6 to 10 percent 6 to 10 percent to 6 percent slopes to 6 percent slopes, to 10 percent slopes to 10 percent slopes, to 10 percent slopes to 10 percent slopes, to 6 percent slopes, to 10 percent to 10 percent 2 to 6 percent slopes 2 to 6 percent slopes, eroded 6 to 10 percent slopes 6 to 10 percent slopes, eroded 10 to 15 percent slopes Cecil sandy loam, 15 to 1*5 percent slopes Cecil gravelly sandy loam, 2 to 6 percent slopes- Cecil gravelly sandy loam, eroded Cecil gravelly sandy loam, slopes Cecil gravelly sandy loam, slopes, eroded Cecil clay loam, 2 to 6 percent slopes, severely eroded Cecil 'clay loam, 6 to 10 percent slopes, severely eroded Cecil clay loam, 10 to 20 percent slopes, severely eroded Chewacla soils Colfax sandy loam Congaree fine sandy loam Congaree silt loam Creedmoor sandy loam., 2 to 6 percent slopes Creedraoor sandy loam, 2 to 6 percent slopes, eroded Creedmoor sandy loam, 6 to 10 percent slopes Map symbol CrC2 CrE CtB etc DuB DuB2 DuC DuC2 EnB EnB2 EnC EnC2 EnD2 FaB FaS2 FaC2 GeB GeB2 GeC GeC2 GeD2 Gc GrB GrB2 GrC GrC2 GrD Gu HeB HeB2 HeC HeC2 HeD HrB HrB2 HrC HrC2 HrD2 HrE LdB2 LdC2 LdD2 LoB LoC Mapping unit Creedmoor sandy loam, 6 to 10 percent slopes, eroded Creedmoor sandy loam, 10 to 20 percent slopes Creedmoor silt loam, 2 to 6 percent slopes Creedmoor silt loam, 6 to 10 percent slopes to 6 percent slopes to 6 percent slopes, eroded to 10 percent slopes to 10 percent slopes, to 6 percent slopes to 6 percent slopes, to 10 percent slopes to 10 percent slopes, to 6 percent slopes to 6 percent slopes, to 6 percent slopes to 6 percent slopes, to 10 percent slopes to 10 percent slopes, Durham loamy sand, Durham loamy sand, Durham loamy sand, Durham loamy sand , eroded Enon fine sandy loam, Enon fine sandy loam, eroded Enon fine sandy loam, Enon fine sandy loan., eroded Enon fine sandy loam, 10 to 15 percent slopes, eroded Facevllle sandy loam, Faceville sandy loam, eroded Faceville sandy loam, 6 to 10 percent slopes, eroded Georgeville silt loam,, Georgeville silt loam, eroded Georgeville silt loam, Georgeville silt loan, eroded Georgeville silt loam, 10 to 15 percent slopes, eroded Goldsboro sandy loam Granville sandy loam, Granville sandy loam, eroded Granville sandy loam, Granville sandy loam, eroded Granville sandy loam, Gullied land Helena sandy loam, 2 to 6 percent slopes Helena sandy loam, 2 to 6 percent slopes, eroded Helena sandy loam, 6 to 10 percent slopes Helena sandy loam, 6 to 10 percent slopes, eroded Helena sandy loam, 10 to 15 percent slopes Herndon silt loam, 2 to 6 percent slopes Herndon silt loam, 2 to 6 percent slopes, eroded Herndon silt loam, 6 to 10 percent slopes Herndon silt loam, 6 to 10 percent slopes, eroded Herndon silt loam, 10 to 15 percent slopes, eroded Herndon silt loam, 15 to 25 percent slopes Lloyd loam, 2 to 6 percent slopes, eroded Lloyd loam, 6 to 10 percent slopes, eroded Lloyd loam, 10 to 15 percent slopes, eroded Louisburg loamy sand, 2 to 6 percent slopes Louisburg loamy sand, 6 to 10 percent slopes to 6 percent slopes to 6 percent slopes, to 10 percent slopes to 10 percent slopes, 10 to 15 percent slopes -29- » Map .ymbol *S -vB mB2 aC f£2 4fC 4fC2 1TD2 4fE <«B 4gB2 «gC 4gC2 rB DtB2 0rC2 BiC KEY Mapping uni^ Lcuisburg loamy sand, 10 to 15 percent slopes Louisburg-Wedowee complex, 2 to 6 percent slopes Louisburg-Wedowee complex, 2 to 6 percent slopes, eroded Louisburg-Wedowee complex, 6 to 10 percent slopes Louisburg-Wedowee complex, 6 to 10 percent slopes, eroded Lynchburg sandy loam Made land Madison sandy loan, eroded Madison sandy loam, eroded Madison sandy loam, 10 to 15 percent slopes. eroded Madison sandy loam, 15 to 25 percent slopes, eroded to 6 percent slopes, to 10 percent slopes, to 6 percent slopes to 6 percent slopes, to 10 percent slopes to 10 percent slopes, Mantachie soils Mayodan sandy loam, 2 Mayodan sandy loar., 2 eroded Mayodan sandy loam, 6 Mayodar. sandy loan, 6 eroded Mayodan sandy loam, 10 to 15 percent slopes, eroded Mayodan sandy loar., 15 to 25 percent slopes Mayodan gravelly sandy loam, 2 to 6 percent slopes Mayodan gravelly sandy loam, slopes, eroded Mayodan gravelly sandy loam, slopes Mayodan gravelly sandy loam, slopes, eroded Mayodan silt loam, thin, 2 Mayodan silt loam, thin, 2 eroded Mayodan silt loam, thin, 6 Mayodan silt loam, thin, 6 eroded Mayodan silt loam, thin, 10 to 15 percent slopes Norfolk loamy sand, to 2 percent slopes to 6 percent slopes to 6 percent slopes, to 6 percent 6 to 10 percent 6 to 10 percent to 6 percent sftpes to 6 percent slopes, to 10 percent slopes to 10 percent slopes. Map symbol Mapping unit PkF Pinkston sandy loam, 10 to 1»5 percent slopes Ps PlusBoer sand Pa Pains fine sandy loam Po Roanoke fine sandy loam Sw Swamp VaB Vance sandy loam, 2 to 6 percent slopes VaB2 Vance sandy loam, 2 to 6 percent slopes, eroded VaC2 Vance sandy loam, 6 to 10 percent slopes, eroded VaA Wagram loamy sand, to 2 percent slopes VaB Wagram loamy sand, 2 to 6 percent slopes VaC Wagram loamy sand, 6 to 10 percent slopes WgA Wagram-Troup sands, to U percent slopes Wh wahee fine sandy loam WkC Wake soils, 2 to 10 percent slopes WkE Wake soils, 10 to 25 percent slopes WmB Wedowee sandy loam, 2 to 6 percent slopes WmB2 Wedowee sandy loam, 2 to 6 percent slopes, eroded WmC Wedowee sandy loam, 6 WnC2 Wedowee sandy loam, 6 eroded WmD2 Wedowee sandy loam, 10 to 15 percent slopes, eroded WmE Wedowee sandy loam, 15 to 25 percent slopes Wn Wehadkee silt loam Wc Wehadkee and Bibb soils WsB White Store sandy loam, 2 WsB2 White Store sandy loar., 2 eroded WsC White Store sandy loam, 6 W&C2 White Store sandy loam, 6 eroded WsE White Store sandy loan, 10 to 20 percent slopes WtB White Store silt loam, 2 to 6 percent slopes WvD3 White Store clay loam, 2 to 15 percent slopes, severely eroded WwC Wilkes soils, 2 to 10 percent slopes WwE Wilkes soils, 10 to 20 percent slopes WwF Wilkes soils, 20 to U'p percent slopes WxE Wilkes stony soils, 15 to 25 percent slopes Wy Worsham sandy loam to 10 percent slopes to 10 percent slopes, Norfolk loamy sand, Norfolk loamy sand, eroded Norfolk loamy sand, 6 Norfolk loamv sand. 6 eroded Orangeburg loamy sand, 2 to b percent slopes Orangeburg loamy sand, 2 to 6 percent slopes, eroded Orangeburg loamy sand, 6 to 10 percent slopes. eroded Pinkston sandy loam, to 10 percent slopes to 10 percent slopes to 10 percent slopes, percent slopes percent slopes, to 10 percent slopes to 10 percent slopes, Adapted from: U.S. Department of Agriculture, Soil Conservation Survey for Wake County, North Carolina, November 1970. -30- «) % a) 3 C -H 4J c o o < 2 H § a & § D O CJ H US w g D CO o (0 M O «H C o •H id 4J cu Q) M c o •H •p (0 0) u u h i 2 IsilfU a 2 I 1 F 3 00 is II. 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I I £ I 8 0* i 0. E 5 u E 5 ^ ..CD U O Ul % E E E E |£ 5 5 5 J2 ■ O O J > j;5 g c a.-= .o *s «s g'Z-x i I I I I u S i s -34- DAY TWO 8:30 a.m. FLOOD HAZARD MANAGEMENT: THREE STORIES Purposes : • To create a mood of excitement regarding the opportunities to develop flood hazard management strategies to meet a variety of goals. • To introduce some of the ways in which the National Flood Insurance Program provides assistance to the community. Activity: • CF slide presentation. NOTES : « I -35- 8:45 a.m. DESIGNING A FLOOD HAZARD MANAGEMENT PROGRAM IDENTIFYING GOALS, OPPORTUNITIES AND STRATEGIES Purpose ; • To reinforce the varying opportunities for flood hazard management presented by the slide show. • To relate these opportunities to the pre- and post-flood stages of flood hazard management. • To highlight the importance of local initiative in taking advantage of various state and federal assistance. • To relate various opportunities and strategies described in slide show to goals described in preceding days session and still taped to wall of plenary session room. Activity; • Small group discussions within plenary session. • Completion of Exercise B. Review Questions 1. What are the variety of goals that the communities in the slide show tried to achieve? 2. What were the obstacles that those communities had to overcome? How did they overcome these obstacles? 3. What factors should be considered in developing a community flood hazard management program? 4. What approaches best address problems of existing development within the flood hazard area? 5. What approaches are best to control new development? NOTES: -36- 6. What kinds of federal/state/local assistance are available to assist communities? 7. What are the differing opportunities available to communities regarding their developed land versus their undeveloped land? What are the differing opportunities available before or between floods, or after a major flood? References ; Flood Hazard Management and Natural Resource Protection: Community Action Guide , Chapter III. t, -37- EXERCISE B 1. What were the goals of the flood hazard management programs adopted by the three communities in the slide show? Goals Montgomery County Baltimore County Sanibel Island 2. How do these goals relate to the general list of goals developed in the previous session? What opportunities did each of the communities explore in developing their flood hazard management programs and to what stage (pre-flood or post-flood) of flood hazard Management? Were the programs directed? Montgomery County Baltimore County Sanibel Island Oppor- tuni- ties Flood Hazard Manage- ment stage address- ed -38- EXERCISE B (continued) 3. What specific strategies did each community adopt to implement their flood hazard management plan? To what extent were federal and state agencies involved? What additional assistance might have been employed in each of the community situations? Strate- gies Federal and State In- volve- ment Addi- tional Assist- ance Montgomery County Baltimore County Sanibel Island < -39- 9:30 - 10:45 a.m. THE FEDERAL AND STATE FRAMEWORK FOR COMMUNITY FLOOD HAZARD MANAGEMENT DECISION MAKING Purpose : • To outline the structure and functions of various Federal and State programs that affect community flood hazard management: — The Floodplains and Wetlands Executive Order — NFIP — State Natural Resource Management • To relate these various activities to the goals of community flood hazard management previously identified by participants . Activities : • Speech • Roundtable • Questions and Answers Review Questions 1. What are the respective responsibilities of the Federal and State governments in flood hazard management. 2. How well are various programs coordinated at the Federal level? How might coordination be improved? 3. What new initiatives are being implemented to improve federal coordination? 4. What are some of the approaches that creative state governments have used to meet their challenge in mitigating flood hazards and protecting natural resources? -40- 5. How do most state governments related their role in flood hazard management to that of the local community? 6. How is the role of the State likely to be affected as the result of new federal initiatives? References : Flood Hazard Management and Natural Resource Protection; Community Action Guide , Chapters IV, V and VIII. NOTES: i 1 -41- 10:45 a.m. BREAK 11:00 a.m. THE NATIONAL FLOOD INSURANCE PROGRAM: WHAT IT DOES — WHAT IT DOESN'T DO Purpose : • To bring participants to a common level of understanding concerning the specific minimum requirements of the NFIP. • To familiarize participants with the tools of the NFIP. • To examine the extent to which the NFIP will help to meet the range of community flood hazard management goals. Activities : • Speech • Reaction Panel • Audience Questions and Answers Review Questions 1. What are the two phases of the NFIP? How does a community enter the NFIP? 2. What are the basic regulatory concepts and tools of community participation in the NFIP? 3. What are the minimum requirements of participation in the Regular program of the NFIP? What function do they serve? (a) What is meant by the Base Flood? 100-Year Flood? (b) What is a Flood Hazard Boundary Map, Flood Insurance Study, FIRM Map, Floodway/Flood Boundary Map? (c) How are Flood Profiles interpreted? -42- 4. What new inititatives are being considered \ for the NFIP Program (1362, constructive total loss, Flood Plains Executive Order)? How will these initiatives likely affect development of community flood hazard management programs? References ; Flood Hazard Management and Natural Resource Protection: Community Action Guide, Chapter IV. NOTES: i -44- I Reading a Profile Flood profiles, contained in the Flood Insurance Study, typically show cross section elevation of the stream bed and the 10-year, 50-year, 100-year, and 500-year flood. Scales: On the example opposite, each line on the vertical axis equals 1/2 foot elevation above sea level. On the horizontal axis each line equals .02 miles (approxi- mately 106 feet) of distance above the mouth of the stream. To locate a site on the horizontal axis: obtain the distance on the ground between the site and a cross section point ( — )• For example, Point X is midway between cross sections AP and AQ. To determine the flood water elevation at that point: locate the point on the flood line you're interested in. (Point X is plotted on the 100-year flood line.) Read the vertical axis to obtain the water elevation. The 100-year flood elevation at Point X is 594.1 feet (above mean sea level) . To determine by how much a structure should be ^ elevated to be above the base flood, subtract the ground 1 elevation of the site from the flood elevation at the site. 4 -46- Reading a Flood Boundary and Floodway Map A Flood Boundary and Floodway Map identifies the boundaries of the floodway and the 100-year, and 500- year flood. The map also indicates the location_of stream_cross sections ( <£> ) • With references to the Flood Profile specific flood elevations may be determined at any site. To locate a site on the map: Obtain the ground distance between the site and two or more points identified on the map (i.e., center- line of a street, bridge or reference mark) . Convert the ground distances to map distances and plot the site on the map. Example: Point X is 200 feet west of the intersection of Lavender and Elm Streets and 200 feet southeast of the intersection of Rosessler and Elm Streets. Point X is not within the floodway. KEY TO SYMBOLS FLOOD BOUNDARY AND FLOODWAY DATA 500 Yr Flood Boundary 100 Yr Flood Boundary FLOODWAY FRINGE 500 Yr Flood Boundary Approximate 100 Yr Flood Boundary Cross Section Line Elevation Reference Mark River Mile ® ® RM7. Ml. 5 Note: Boundaries of the floodways were computed at cross sections and interpolated between cross sections. The floodways were based on hydraulic considerations without regard to economic, legal, or political factors. DEPARTMENT OF HOUSING AND URBAN DEVELOPMENT Federal Insurance Administration FLOOD BOUNDARY AND FLOODWAY MAP MAP INDEX CITY OF FLOODVILLE, Ml (FLOOD CO.) COMMUNITY NO. 314159 * > -48- Reading a Flood Insurance Rate Map The Flood Insurance Rate Map (FIRM) indicates the risk zones (for insurance purposes) within the flood hazard area, and map representations of 100-year flood elevation. Use the flood profile for specific site elevations. Point X is within insurance rate zone A5. KEY TO SYMBOLS ZONEB ZONE DESIGNATIONS* WITH DATE OF IDENTIFICATION ie.. 12/2/74 Base Flood Elevation Line with elevation in feet Base Flood Elevation where uniform within zone Elevation Reference Mark River Mile ZONEB 573- (EL987'MSL) RM7 x • M1.5 •EXPLANATION OF ZONE DESIGNATIONS A flood insurance map displays the zone designations for a community according to areas of designated flood hazards. The zone designations used by F I A are: Zone Explanation A Areas of 100-year flood; base flood elevations and flood hazard factors not determined. AO Areas of 100-year shallow flooding; flood depth 1 to 3 feet; product of flood depth (feet) and velocity (feet per second) less than 15. A1 - A30 Areas of 100-year flood; base flood elevations and flood hazard factors determined. A69 Areas of 100-year flood to be protected by a flood protection system under construction; base flood elevations and flood hazard factors not determined. B Area between limits of 100-year flood and 500-year flood; areas of 100-year shallow flooding where depths less than 1 foot. C Areas outside 500-year flood. D Areas of undetermined, but possible, flood hazards. V Areas of 100-year coastal flood with velocity (wave action); base flood elevations and flood hazard factors not determined. VO Areas of 100-year shallow flooding with velocity; flood depth 1 to 3 feet; product of depth (feet) and velocity (feet per second) more than 15. V1 V30 Areas of 100-year coastal flood with velocity (wave action); base flood elevations and flood hazard factors determined. CONSULT NFIA SERVICING COMPANY OR LOCAL INSURANCE AGENT OR BROKER TO DETERMINE IF PROPERTIES IN THIS COMMUNITY ARE ELIGIBLE FOR FLOOD INSURANCE. INITIAL IDENTIFICATION DATE: FEBRUARY 1, 1975 DEPARTMENT OF HOUSING AND URBAN DEVELOPMENT Federal Insurance Administration FLOOD HAZARD BOUNDARY MAP M - 01 -23 FLOOD INSURANCE RATE MAP I • 01 -23 MAP INDEX CITY OF FLOODVILLE, Ml (FLOOD CO.] COMMUNITY NO. 314159 ft 1 i) 'J -50- 12:15 p.m. LUNCH 1:30 p.m. FLOOD HAZARD MANAGEMENT: ISSUES AND PROGRAMS Purpose : • To allow participants to explore in more detail the various issue and programs described in the morning sessions. Activity: • Concurrent small group sessions in the following areas: — building standards; — NFIP regulations; — 1362; — flood hazard mapping; Review Questions A. Building Standards 1. What specific provisions should be included in local building codes to insure that residents of new structures elevated above the 100-year flood do not inhabit basements which are below 100-year level? 2. What problems might building inspectors anticipate in enforcing standards? 3. How do building requirements of the NFIP relate to the acturially based insurance rates used by FEMA? B. NFIP Regulations 1. What are the minimum requirements of the NFIP (Regular Phase) in terms of elevations, construction, and land use? 2. What programs, if any, exist for cooperation betwee upstream and downstream communities? 3. To what extent are fragile riverine eco- systems protected under the NFIP regulations? r -51- C. Section 1362 (Post Disaster Acquisition/ Relocation under NFIP) 1. What is Section 1362? What are its major provisions? 2. How is Section 1362 being implemented currently? How much money has been appropriated? 3. How is eligibility for 1362 funds determined? What procedures must communities follow to acquire 1362 funds? 4. What restrictions are placed on the use of 1362 funds? D. Flood Hazard Mapping 1. What role do maps play in the NFIP? 2. What is the status of FIA's community mapping process? 3. What is the data base of the community map? What are the sources of possible error in flood hazard boundary mapping? What kinds of changing conditions might affect the communities of flood hazard boundary? 4. What is the process of amending maps to reflect changing conditions? 5. What is the status of the new FIA map locator service? References ; Flood Hazard Management and Natural Resource Protection; Community Action Guide , Chapters IV, V and VII. NOTES -52- 2:30 p.m. BREAK V 2:45 - 3:45 p.m. LOCAL STRATEGIES FOR FLOOD HAZARD MITIGATION: CASE EXAMPLES Purpose : • To allow participants to examine in detail the way a particular community utilizes a strategy (or set of strategies) to accomplish flood hazard mitigation goals . • To focus attention on the stages of flood hazard management (pre and post) to which the strategy was applied. ^ • To highlight the role of various federal, and state programs (NFIP, WQM) in accom- plishing the strategy. • To relate the strategies to the goals of flood hazard mitigation identified previously. ^ Activity: ' • Concurrent small group sessions on community case examples which address a variety of flood hazard management strategies. For example: — relocation; — recreation/acquisition; — storm water management; — zoning; — critical areas protection; — development with sensitivity to ecosystems. Review Questions 1. What are the major flooding problems in the community? 2. What are the estimated costs to the community of recurrent floods? r 3 J NOTES *j -53- 3. What opportunities did the community identify to begin to address their flooding problems? In the pre-flood situation? In the post-flood situation? 4. What specific flood hazard management strategies were proposed? Which ones were rejected and why? Which ones were adopted? 5. Who were the actors involved in the decision-making process? How were they involved? 6. What community, state and federal resources were required to implement the particular strategy? How were these resources obtained? 7. What lessons have been learned by community leaders in the process? What things might they approach differently if they were to start over again? References ; Flood Hazard Management and Natural Resource Protection; Community Action Guide , Chapters III and V -54- 4:00 - 5:00 p.m. THE ROLE OF PUBLIC PARTICIPATIN IN COMMUNITY FLOOD HAZARD DECISION MAKING (PLENARY) Purpose : • To establish the importance of involving various publics in developing a community flood hazard management program. — Building a constituency for a comprehensive program. — Ensuring equity. — Building a constituency for implementation. • To establish some performance standards for effective public participation. • To expose participants to the range of techniques that are available for public involvement. Activities: c • Speech • Diverse Public Perspectives (see Exercise C attached) • Roundtable Discussion • Audience Questions and Answers Review Questions 1. Who are the key actors both within and outside of the community who should be involved in the development of a community flood hazard management program? What range of perspectives are they likely to represent and why is it important to include them? 2. What are some of the key decision points in the development of a flood hazard management program where the public should be involved. What specific kinds of information/input can the various publics provide at each of these decision points? r 3 > NOTES 'j -55- 3. What role can or should the public play during implementation of the flood hazard management program? 4. To what extent in the past has the public been involved in developing a community flood hazard management program? What methods were used? What has been the result of this level of involvement? 5. Does the NFIP have any specific require- ments or guidance for public involvement? 6. What are some of the essential elements of an effective community public involve- ment effort? What are some of the tech- niques which may be most useful in achieving quality public participation? 7. What are some potential sources of assistance to communities in developing a meaningful public participation effort? References ; Flood Hazard Management and Natural Resource Protection: Community Action Guide, Chapter VI. 56- EXERCISE C INTRODUCTION OF PARTICIPANTS Participants for the Flood Hazard Institute were chosen to represent a diversity of opinions and backgrounds. The purpose of this segment of the program is to give everyone a better understanding of the attitudes and perspectives shared by fellow attendees, resource people, and Institute staff. DIRECTIONS FOR EXERCISE: Indicate your opinion on each question by marking the horizontal line with an w x" above the appropriate number. Then indicate how strongly you care about this issue by circling a letter from A (very important issue) to E (unimportant issue) on the vertical line. You will have ten minutes to mark your responses, and then we will sample opinion in the group. 1) How much weight should be given to public opinion in the development of a community flood hazard management program? A ( The decisions involve complex technical issues and should be made by experts Equal weight should be given to public opinion and expert conclusions . The important decisions in developing a flood hazard management program are not that technical, and the public, who has to live with the results, should have the primary say. very impor- * tant issue) B C ( D ( moder- ately impor- tant) unim- portant issue) I -57- EXERCISE C (continued) 2) Granted that most people would like to see both environmental improvement and low taxes and economic development, how would you vote in a clear-cut choice between the economy and the environment in your town? The economic stability of a community is the most important consi- deration. After all if people don't have jobs and money to spend they won't care about their environment. Equal weight given to both Maintaining the community's environmental quality is most important . Poor environmental quality produces all sorts of hidden community costs which too often aren't considered . A (very impor- tant issue) B (moder- ately impor- tant) 3) Should residents who knowingly choose to live in flood hazard areas be assessed some sort of tax to cover the community costs (emergency police, fire, rescue services, public utility repairs, warning and evacuation procedures) incurred as the result of a flood disaster? (unim- portant issue) No, these are costs rightly borne by the community as a whole. Besides, it would be impossible to establish an equitable tax. Possibly in situations where the flood hazard is well defined and the resident who has a choice between a non- hazard location chooses the hazardous location because of the personal benefits (aesthetics, convenience) derived from the hazardous location. Yes, these residents reap the benefits of such a location, so they should also bear the costs. -58- 5:30 - 6:30 p.m. SOCIAL HOUR 6:30 - 7:30 p.m. DINNER 7:30 p.m. RECOMMENDATIONS FOR GROUP ACTION Purpose : • To continue the working group identified the first evening and give that group opportunities to develop ideas for follow-up activities after the conference. Activity: • Small group sessions Review Questions 1. What are the major flooding problems in your community? What are the most important first steps to be taken to resolve these problems? 2. What role does your state play in encouraging community flood hazard management? How might the state role be enhanced? 3. Given the flood hazard management opportunities which exist in your community, what are likely to be the most effective strategies available to realize these opportunities? 4. Who are the key people in your community, region, state who should be involved in flood hazard management decision-making? Are they now involved? 5. What kinds of public involvement mechanisms may be utilized to involve members of the various publics in your community in the development of a flood hazard management program? r 5 -59- 6. What are the first steps to be taken when you return home to ensure that a public involvement program to develop a flood hazard management program actually materializes? References ; Flood Hazard Management and Natural Resource Protection; Community Action Guide, Chapters III and VI. NOTES > 5 -60- DAY THREE 8:30 - 9:30 a.m. ISSUES IN PUBLIC PARTICIPATION Purpose : • To allow participant to focus on the issues and tools that influence the development of a successful public involvement program. Activities : • Concurrent small group workshops on public participation issues and tools. These workshops might cover such topics as: — Goal setting — Coalition building — Bargaining and negotiation — Communication tools — Motivating the public Review Questions | A. Goal Setting 1. Who in the community should be involved in the setting of goals for a flood hazard management program? How can or should broader community goals be reflected? 2. How do you identify community goals? What techniques (questionnaires, local workshps, referendum) are most useful? How can you ensure that the goals you identify in fact reflect those of the entire community? 3. What do you do in situations when some goals seem to be in direct conflict? What are some effective methods for achieving compromise? B. Coalition Building 1. How can building a coalition help the passage and implementation of a community flood hazard management program? / -61-- 2. What interests should comprise your coalition. How may these interests be identified? 3. How does one identify the common interests which may bind a coalition? 4. What kinds of organizational decision-making will help keep a coalition together? 5. What resources, skills and outreach ability do the various interest groups which might comprise a coalition have which might be utilized in developing a comprehensive flood hazard management program? C. Bargaining and Negotiation 1. When is formal bargaining or negotiation useful? 2. How do you establish those points which are not negotiable? Those that are? 3. How do you identify tradeoffs that various groups may be willing to make to come to agreement? 4. How do you approach an opposing group on the subject of bargaining? 5. When is it useful to have a third party assist in the bargaining process? 6. What type of technical expertise might be required during a negotiation process? 7. If a third party negotiator is used, what skills should he/she have? D. Communication Skills 1. What are some of the most effective means to reach the general public? (news media, public television) What basic message should be relayed to different publics? 2. How should materials be presented to the general lay audience? How can you trans- late complicated technical analysis into simple English? -62- 3. How can you be sure your message is being received and clearly understood? What kinds of feedback mechanisms are appropriate? E. Motivating the Public 1. How do you overcome initial public apathy or unawareness? What techniques could you use to "sell" your program to the public? 2. What are some of the causes of public apathy? How do you overcome them? 3. What are some examples of techniques which have worked in other communities? 4. How do you keep the public involved and interested? References ; Flood Hazard Management and Natural Resource Protection: Community Action Guide , Chapter VI. Flood Hazard Management and Natural Resource Protection; Community Action Guide , Appendices . NOTES: -63- 9:30 - 10:00 a.m. BREAK AND SWITCH 10:00 - 12:00 noon DESIGNING A FLOOD HAZARD MANAGEMENT PROGRAM IN RIVERINE COMMUNITIES Purpose : • To examine in a realistic setting the factors tht affect the opportunities for flood hazard management in riverine communities. • To examine the basic regulatory frame- work likely to result from community participation in the NFIP, and other Federal and State programs. • To examine the range of strategies and tools that might be linked together to develop a comprehensive flood hazard management program according to the appropriate flood hazard management stage. • To identify the economic and social interests that may be affected by alter- native strategies. • To explore the range of public partici- pation techniques which would be useful when selecting and implementing a compre- hensive community flood hazard management program. • To establish the tradeoffs that must be made by a community in designing a flood hazard management program. Activities : • Participants will divide into six to eight groups, each of which will utilize a single hypothetical case example (included in the workbook) as a starting point for discussion, • Each case study contains information on the following factors that affect and/or constrain opportunities for flood hazard management. -64- -- physical characteristics; — population; — flooding problems; — economic and social considerations; — political context; -- additional institutional considerations; Community maps on present land ues and flood hazard areas are included. Par- ticipants will draw on the case study material and their own experiences to address range of questions. Review Questions ; 1. Who are the interests with a stake in flood hazard management? 2. What is the nature of their stake? 3. What needs of various interests will have to be met in order to obtain their support in meeting flood hazard management goals? Local government /** Low income * Business Banker Real estate developer Salesman Industry/Land Water dependent/Water based industry Civic Leader Environmentalist 4. What kinds of tradeoffs (economic/social/ environmental/political) might various interests be willing to make? 5. What kinds of strategies can be adopted to reflect these tradeoffs and to respond to the flooding problems of this community? In the pre-flood period? In the post- flood period? 6. What are the likely impacts of various strategies on various interest groups? On community as a whole? 5 -65- References : Flood Hazard Management and Natural Resource Protection; Community Action Guide, Chapters III, VII, and VIII. 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Potential Opportunities for Flood Hazard Management Pre-Flood Situation Post-Flood Situation Within 100-Year Floodplain Structures (Existing and Future) Undeveloped Land Outside Floodplain but within community Outside Community but within watershed -74- Exercise E Use this chart to record the results of the workshop discussion relating to possible strategies identified in the case example. Refer to chart in selecting the most appropriate strategies. Flood stage where most applicable Post- Flood Affected Interests Trade-offs Pre- Flood Strategy (tool) During Flood -75- ROWLETT CREEK * I. Regional Context/Physical Characteristics of Watershed Rowlett" Creek rises west of the city of McKinney and flows southeast to Lake Ray Hubbard on the East Fork Trinity River. The general land surface slope of the watershed is moderate or rolling. Stream slopes are steep in the upper portion of the basin and channels are deep cut into limestone with large channel capacities. Channel size and slope decrease on the main stem of Rowlett Creek in the lower half of the basin and the floodplains are relatively wide. The drainage area of Rowlett Creek is approximately 136 square miles and includes all or portions of 10 municipalities and two counties. Approximately 8,100 acres of 9% of the total land area in the watershed lies within the 100-year floodplain. The majority of the land area (70%) is presently used for crops and grazing. Although the area is still predominantly rural , it lies adjacent to one of the fastest growing metro- politan areas in the county. Urbanization in this watershed is proceeding rapidly and is expected to continue in the future. In particular, the cities of Richardson, Garland, and Piano have experienced phenomenal growth in residential , commercial and light industrial development in recent years. II. Piano Piano, with a 1977 population of 51,000 is one of the largest cities in the Rowlett Creek watershed. Its population has increased nearly 220% since 1970. This rapid population increase has resulted in a conversion of over 6,000 acres of prime agricultural land to residential, commerical and industrial purposes. Although a significant portion of the town is still devoted to agricultural purposes, increased urbanization is expected to significantly alter the community land-use patterns in the next 20 years (see attached land-use map for more details) . Because so much of the land area is devoted to grazing and crop production, forest land is extremely limited. The majority of trees are located in or directly adjacent to area creeks and drainage floodplains. These narrow strips of bottomland hardwoods constitute an area of great ecologic diversity providing an ideal habitat for a variety of plant and animal s^pecies. The majority of the community's limited wetlands are located within this bottom- land hardwood forest area. The edge zones between the bottonland hardwoods and cropland or grazing land are well defined and represent another ecologically diverse area in the community. The case study community resembles an actual community in some respects. Facts" have been changed, however, to make the case study more useful in the Institutes. The study community should accordingly be considered fictitious. -76- As the result of intense development pressures, many of these bottomland hardwood forests are currently being altered through clearing/grading practices which seriously threaten the ecologic value of these areas. III . Flooding Problems The surface in Piano is gently rolling to almost level. The town is transected by a number of narrow, well incised streams the largest being Rowlett Creek, Cottonwood Creek and Spring Creek. Rowlett and Cottonwood Creeks with their head- waters located approximately 10 miles north of Piano can be classified as having U-shaped stream valleys with relatively broad floodplains. Spring Creek, which originates within the confines of Piano, however, has a narrow floodplain more typi- cal of a V-shaped stream valley. Piano has experienced few major flooding problems in the past due primarily to the fact that the older portion of the city is located on the high ground between Rowlett and Spring Creeks. However, in recent years, significant new development has occurred in the vicinity of Spring Creek and Rowlett Creek, often encroaching on the floodplain. If this pattern continues, Piano could experience serious flooding problems in the future. In addition, the recent rapid watershed development in communi- ties upstream from Piano is expected to continue and could significantly increase the future flood hazard situation in Piano. To date, no major structural alterations have been made along any of the streams in the watershed, although several have been proposed. IV. Economic/Social Considerations Although Piano has experienced tremendous urbanization in recent years, a great deal of undeveloped land, primarily agri- culture land, still remains. While some of this undeveloped land lies within the 100-year floodplain, the majority lies outside the designated flood hazard area. The economic base in Piano, as in the rest of the water- shed, is agricultural although the town is rapidly being trans- formed into a bedroom community serving a nearby expanding metropolitan area. Commercial development has increased tremendously in response to the growth of residential develop- ment. Industrial development is limited in Piano but is expected to increase significantly if rapid growth in the area continues. Most of the recent development which has occurred within the flood hazard area consists of single-family residences, mobile homes, and commercial activities. It is estimated that under existing conditions, a 10-year flood event would produce nearly $400,000 in damages and a 100-year flood would -77- produce over $1.5 million in damages. Continued rapid growth within the Rowlett Creek watershed and particularly within Piano is expected to increase these damage estimates significantly, unless strict development controls are implemented. The existing sewage treatment facility located at the confluence of Rowlett and Cottonwood Creek, presently serves only the downtown area. However, city officials are considering extending sewer service to the area of Rowlett Creek due north of the treatment plant as this are contains a number of single- family residences with failing septic systems. V. Political Context Piano is only one of ten communities sharing the Rowlett Creek watershed. Situated as it is in the center of the water- shed, Piano's flooding situation is likely to be impacted by development in upstream communities. In addition, development activities within Piano may in fact contribute to flooding problems downstream. Although the merits of intergovernmental cooperation within the watershed are obvious, as yet there is no formal mechanism to achieve such cooperation. The city of Piano is governed by a mayor who strongly favors continued growth. Development controls are not popular among many community residents, particularly the business interests who have realized a significant profit from the recent boom. The community has adopted standard zoning and subdivision ordinances. These have been amended to incorporate the minimum requirements of the NFIP including delineation of floodway district and a floodplain district, requirements for elevating new structures within the floodplain to the 100-year flood levels and limitations on new develop- ment within the defined floodway. However, the ordinances are not well enforced. Since the bottomland hardwood forests are the most attractive areas for residential development, city officials have been reluctant to impose serious con- straints on building in these areas. The community has not yet experienced any significant flooding and, therefore, is unconvinced of the need for a comprehensive flood hazard mitigation program. VI. Additional Institutional Considerations The state has recently adopted a floodplain law which establishes a 0.5 foot rise floodway and essentialy prohibits new development within the floodway. Local governments are required to review proposed new development projects within the 100-year floodplain to ensure that they will not produce an increase in flood heights that exceeds 0.5 feet. -78- Th e area-wide 208 plans prepared for the two counties involved identify urban storm water runoff and agricultural runoff as the two major sources of water pollution in the region. The plans recommend that local governments implement non-structural measures to mitigate the adverse impacts of future development s . Suggested implementation measures include requirements for on-site stormwater retention facilities for all new developments, and local sediment control ordinances. s -79- LAKE RAY HUBBARD ROW LETT CREEK BASIN VICINITY MAP -81- © 2) !) -82- 3:30 - 4:30 p.m. CONCLUSION — COMMUNITY FLOOD HAZARD MANAGEMENT: A CHALLENGE TO WORK TOGETHER Purpose : o To give participants an opportunity to exchange information on planned follow-up activities . o To help participants achieve a sense of what was accomplished by the program. o To relate planned follow-up activities back to goals identified early in the conference . Activity: o Series of short reports by small group leaders; o Newsprint listing accomplishments of small groups posted around room; o Discussion of goals and accomplishments led by group facilitator. NOTES: -83- 12:30 - 1:30 p.m. LUNCH 2:30 - 3:00 p.m. FINAL SMALL GROUP DISCUSSION NOTES: * -85- GLOSSARY ACTUARIAL RATES [1] - Insurance rates determined on the basis of a statistical calculation of the probability that a certain event will occur. Actuarial rates are also called "risk premium rates." They are established by FIA pursuant to individual community flood insurance studies and investigations that are undertaken to provide flood insurance in accordance with the National Flood Insurance Act and with accepted actuarial principles, including provisions for operating costs and allowances. AREA OF SPECIAL FLOOD HAZARD [1] - The land in the floodplain within a community subject to a 1 percent or greater chance of flooding in any given year. BARRIER ISLANDS [5] - Elongate seafront islands of sand formed by wave action. BASE FLOOD (REGULATORY FLOOD) - The selected flood frequency for regulatory purposes. The NFIP has adopted the 100-year flood as the base flood to indicate the minimum level of flooding to be used by a community in its floodplain management regulations. BERM - The horizontal portion of the backshore beach formed by sediments deposited by waves. BOG [6] - A wetland usually developing in a depression or lake with poor drainage. BOTTOMLAND HARDWOODS - Tree species that occur on water- saturated or regularly inundated soils. Classified as wetlands, these areas content both trees and woody shrubs BULKHEAD [5] - A vertical wall of wood, steel, or concrete, built parallel to the shoreline and designed to deflect waves and control erosion. CHIEF EXECUTIVE OFFICER (CEO) [1] - The official of the community who is charged with the authority to implement and administer laws, ordinances, and regulations for that community. -86- COASTAL HIGH HAZARD AREA (CHHA) [1] - "Coastal high hazard area" means the area subject to high velocity waters, including, but not limited to, hurricane wave wash or tsunamis. The area is designated on a FIRM as Zone Vl-30. COMMUNITY [1] - Any State or area or political subdivision thereof, or any Indian tribe or authorized tribal organiza- tion, which has authority to adopt and enforce floodplain management regulations for the areas within its juris- diction. EMERGENCY PROGRAM [1] - The program as implemented on an emergency basis in accordance with NFIP. It is an interim program to provide a first layer of subsidized insurance before the detailed risk studies from which actuarial rates are computed have been completed. ENCROACHMENT [4] - Any fill, structure, building, use, accessory use, or development in the floodway. ENCROACHMENT/FLOODWAY LINES [4] - The limits of obstruction to flood flows. These lines are on both sides of and generally parallel to the river or stream. The lines are established by assuming that the area landward (outside) of the lines will ultimately be developed in such a way that it will not be available to convey flood flows. EROSION [1] - The process of the gradual wearing away of land masses. ESTUARY [5] - A confined coastal water body with an open connection to the sea and a measurable quantity of salt in its waters. FIRST LAYER COVERAGE [1] - The maximum amount of structural and contents insurance coverage available under the NFIP Emergency Program. FLOOD [1] /FLOODING [1] - A general and temporary condition of partial or complete inundation of normally dry land areas from the overflow of inland and/or tidal waters, and/or unusual and rapid accumulation of runoff of surface waters from any source. -87- FLOOD CONTROL WORKS - See FLOOD PROTECTION SYSTEMS. FLOOD DISCHARGE [3] - The total quantity of water flowing in a stream and adjoining overflow areas during times of flood. It is measured by the amount of water passing a point along a stream within a specified period of time and is usually measured in cubic feet of water per second (cf s) . FLOOD FREQUENCY [3] - The frequency with which a flood of a given discharge has the probability of recurring. For example, a 100-year frequency flood refers to a flood discharge of a magnitude likely to occur on the average of once every 100 years or, more properly, has a 1 per- cent chance of being exceeded in any year. Although calculation of possible recurrence is often based upon historical records, there is no guarantee that a 100-year flood will occur at all within the 100-year period or that it will not recur several times. FLOOD HAZARD [2] - The potential for inundation and involves the risk of life., health, property, and natural flood- plain values. FLOOD HAZARD BOUNDARY MAP (FHBM) [1] - An official map of a community, issued through the NFIP, where the boundaries of the flood, mudslide (i.e., mudflow) and related erosion areas having special hazards have been designated as Zone A, M, and/or E. FLOOD HAZARD MANAGEMENT - Encompasses all local, State, and Federal activities taken before, during, and after a flood to reduce flood losses or in response to a flood disaster. FLOOD INSURANCE [1] - The insurance coverage provided under the National Flood Insurance Program. FLOOD INSURANCE STUDY (FIS) (FLOOD ELEVATION STUDY) [1] - An examination, evaluation, and determination of flood hazards and, if appropriate, corresponding water surface elevations, or an examination, evaluation, and determination of mudslide (i.e., mudflow) and/or flood-related erosion hazards. -88- FLOOD INSURANCE RATE MAP (FIRM) [1] - An official map of a community on which the FEMA has delineated both the special hazard areas and the risk premium zones applicable to the community. FLOOD PROTECTION SYSTEMS (STRUCTURAL CONTROLS) [1] - Those physical structural works for which funds have been authorized, appropriated, and expended and which have been constructed specifically to modify flooding to reduce the extent of the area within a community subject to a "special flood hazard" and the extent of the depths of associated flooding. Such a system typically includes hurricane tidal barriers, dams, reservoirs, levees, or dikes. These specialized flood modifying works are those constructed in conformance with sound engineering standards. FLOOD-RELATED EROSION [1] - The collapse or subsidence of land along the shore of a lake or other body of water as a result of undermining caused by waves or currents of water exceeding anticipated cyclical levels or suddenly caused by an unusually high water level in a natural body of water, accompanied by a severe storm, or by an unanticipated force of nature, such as a flash flood or an abnormal tidal surge, or by some similarly unusual and unforeseeable event which results in flooding. FLOODPLAIN/FLOOD-PRONE AREA - Any land area susceptible to being inundated by water from any source (see the definition of "flooding"). FLOODPLAIN MANAGEMENT [1] - The operation of an overall program of corrective and preventive measures for reducing flood damage, including but not limited to emergency preparedness plans, flood control works, and floodplain management regulations. FLOODPLAIN MANAGEMENT REGULATIONS [1] - Zoning ordinances, subdivision regulations, building codes, health regula- tions, special purpose ordinances (covering, for example, floodplains, grading, and erosion control) and other appli- cations of police power. The term describes such State or local regulations, in any combination thereof, which provide standards for the purpose of flood damage prevention and reduction. -89- FLOODPLAIN PRESERVATION [2] - The prevention of modification of the natural floodplain environment or maintenance of the floodplain environment in a condition as close as possible to its natural state using all practicable means. FLOODPLAIN RESTORATION [2] - The re-establishment of a setting or environment in which the natural functions of the floodplain can again operate. FLOODPLAIN VALUES [2] - Those natural and beneficial attri- butes associated with the relatively undisturbed state of the floodplain, including values primarily associated with water, living, and cultural resources. FLOOD PROOFING [1] - Any combination of structural and nonstructural additions, changes, or adjustments to struc- tures that reduce or eliminate flood damage to real estate or improved real property, water and sanitary facilities, structures and their contents. FLOODWAY - That portion of the floodplain consisting of the stream channel and overbank areas needed to carry and discharge flood flows. The floodway is intended to carry the deep and fast moving water. FREEBOARD - A factor of safety usually expressed in feet above a flood level for purposes of floodplain management. "Freeboard" tends to compensate for the many unknown factors that could contribute to flood heights greater than the height calculated for a selected size flood and floodway conditions, such as wave action, bridge openings, and the hydrological effect of urbanization of the watershed. GROIN - A dam for sand. A groin is a structure built at right angles to a beach to interrupt longshore sand movement and trap sand in order to stabilize or widen the beach. 100-YEAR FLOODPLAIN - The land area adjoining a river, stream, lake, or ocean which is inundated by the 100-year flood. The 100-year flood is the regulatory (base) flood under the NFIP. -90- HYDRAULICS - The science dealing with the mechanical properties of liquids which describes the specific pattern and rate of water movement in the environment. HYDROLOGY - The science of the earth's waters which describes the occurrence, circulation, distribution, chemical, and physical properties of water and its reaction with the environment. LITTORAL [5] - Of or pertaining to the shore, especially of the sea; coastal. LITTORAL DRIFT [5] - The movement of sand by littoral (long- shore) currents in a direction parallel to the beach along the shore. MARSH [6] - A wetland dominated by herbaceous or nonwoody plants, often developing in shallow ponds or depressions, river margins, tidal areas, and estuaries. MANGROVE SWAMP (STAND) [5] - An assemblage of subtropical trees of the genus Rhezaphora forming dense thickets which extend into coastal waters. NONSTRUCTURAL [2] - Any action taken to reduce or prevent flood losses in a floodplain other than the construction of storage dams, retention dams, diversions, channel improvements, and levees. All those adjustments in floodplain occupancy not specifically intended to modify flood behavior. Such adjustments include such devices as public acquisition of land, relocation of facilities, flood proofing, warning systems, and land use regulation. PRACTICABLE [2] - Capable of being done within existing con- straints. The test of what is pracicable depends upon the situation and includes consideration of the pertinent factors, such as environment, cost, or technology. PRESERVE [2] - To prevent modification to the natural floodplain environment or to maintain it as closely as possible to its natural state. -91- REGULAR PROGRAM - The program authorized by the NFIP under which risk premium rates are required for the fTrs\ pfrt of available coverage (also known as "first layer" coveraae) for all new construction and substantial improvements 9 premium rates, whichever are lower B Ma HiL; „< /» ? construction, risk premium rates are atway™ u !ref fVthe second layer coverage and such coverage is offlred onlv communlt^ "" C ° mPleted the P1 °° d ^»«- "^ ^the S Y ,?° DPLAIK [3] " The area ^joining a river, flood ' rn ^° r ° Cean WhiGh iS inu "dated by a regulatory of » « ? 5 lve rine areas, the floodplain usually consists referrec to a^a f!o"r Y a " d "^^y flood frLge £"! flo f o e dp r rfin t0 ma a y condor fJKft r'gU^al freas 'he LTha^^r^^L-af^^ ^^^ a " a and * regulftory 1 " REGULATORY FLOODWAY r31 - A nnrH^n ~* tu flood would occupy consist^'oraltrelm^nnerand ' 6 ' se V !e r cte n d k ?f£S S? a 1C h Ul ' ted ?°! be "P-bWf^veyiS^the ini™»« d ? discharge without flood heights or velocities nol^ac^-h^?- ££-. oSKife'S^tS^ "floodway" is sometimes understood by engineers) Rather o o of sufficient widt^anf h" 1 *""™ £"«> calculated veyance cKSS.\? p 1 Vk ^Voo" ^a^rVf °o°m C ° n " substantially increasing verities ov ef what they would have been without assumed confinement. In this Calculation -92- ( REGULATORY) FLOOD FRINGE (also called the floodway fringe) - The portion of the regulatory floodplain beyond the limits of the regulatory floodway. It is subject to less frequent and lower velocity flooding and does not play a major role in passing flood flows. RESTORE [2] - To re-establish a setting or environment in which the natural functions of the floodplain can again operate. REVETMENT [5] - Armors the slope face of a dune or bluff with one or more layers of rock (riprap) or concrete. RIFFLES - Stream channel bottoms are not uniform. They change in repeating patterns between shallow parts called riffles and deeper pools. RIPRAP - Rock walls. RISK PREMIUM RATES - See ACTUARIAL RATES. SEAWALL [5] - A solid barricade built at the water's edge to protect the shore and to prevent inland flooding. SECOND LAYER COVERAGE - An additional amount of insurance coverage made available when a community officially enters the Regular Program of the NFIP. SEDIMENT LOAD - The amount of suspended sediment carried by the stream. The stream's sediment load varies with water velocity and sediment size. SNAGGING - Removal of submerged or partially submerged tree stumps or branches. STILL WATER STORM HEIGHT - The projected height or elevation of flood waters generated by coastal storms of various magnitudes calculated under ideal still water conditions where no wind generated waves or storm surges are present. -93- STATE COORDINATING AGENCY [1] - The agency of a State govern- ment or other office designated by a State governor or by State statute at the request of the NFIP Administrator to assist in the implementation of the National Flood Insurance Program in that State. STRUCTURE [1] - For floodplain management purposes; a structure is a walled and roofed building, including mobile homes, and a gas or liquid storage tank that is principally above ground. "Structure" for insurance coverage purposes means a walled and roofed building, other than a gas or liquid storage tank, that is principally above ground and affixed to a permanent site, including mobile homes on foundations. For the latter purpose, the term includes buildings under construction, alteration, or repair, but does not include building materials or supplies intended for use in such construction, alteration, or repair, unless such materials or supplies are within an enclosed building on the premises. STRUCTURAL - See FLOOD CONTROL WORKS SUBSIDIZED RATES [1] - The rates established by the NFIP Administrator involving in the aggregate a subsidization by the Federal Government. SUBSTANTIAL IMPROVEMENT [1] - Any repair, reconstruction, or improvement of a structure, the cost of which equals or exceeds 50 percent of the market value of the structure either, (a) before the improvement or repair is started, or (b) if the structure has been damaged, and is being restored, before the damage occurred. For the purposes of this definition, "substantial improvement" is considered to occur when the first alteration of any wall, ceiling, floor, or other structural part of the building commences, whether or not that alteration affects the external dimen- sions of the structure. The term does not, however, include either (1) any project for improving a structure to comply with existing State or local health, sanitary, or safety code specifications that are solely necessary to assure safe living conditions or (2) any alteration of a structure listed on the National Register of Historic Places or a State Inventory of Historic Places. SWALE [5] - A low-lying area frequently moist or marshy; an intermittent drainageway; a slough. -94- SWAMPS [6] - A wetland dominated by woody plants, shrubs, and trees such as maples, gums, and Cyprus. TSUNAMI [5] - A great sea wave produced by submarine earth movement or volcanic eruption. VARIANCE [1] - A grant of relief by a community from the terms of a floodplain management regulation. WATER SURFACE ELEVATION [1] - The projected heights in relation to Mean Sea Level reached by floods of various magnitudes and frequencies in the floodplains of coastal or riverine areas. WATERSHED [4] - A region or area contributing untimately to the water supply of a particular watercourse or water body. WETLANDS [2] - Those areas that an inundated by surface or ground water with a frequency sufficient to support and, under normal circumstances, does or would support a preva- lence of vegetative or aquatic life that requires saturated or seasonally saturated soil conditions for growth and repro- duction. Wetlands generally include bottomland hardwoods, swamps, marshes, bogs, and similar areas such as sloughs, potholes, wet meadows, river overflows, mud flats, and natural ponds. C * -95- COMMON ABBREVIATIONS DR&R - Office of Disaster Response and Recovery of FEMA FEMA - Federal Emergency Management Agency FHBM - Flood Hazard Boundary Map FIA - Federal Insurance Administration of FEMA FIS - Flood Insurance Study FIRM - Flood Insurance Rate Map NFIP - National Flood Insurance Program REFERENCES As defined in the regulations for the National Flood Insurance Program, 41 FR 46962, 1976. A defined in the U.S. Water Resources Council guidelines for implementing Executive Order No. 11988, 43 FR 6030 (1978). From J. Kusler and T. Lee, "Regulations for Flood Plains," American Society of Planning Officials, Planning Advisory Service Report No. 277 (1972). From Wisconsin Administrative Code, Chapter NR 16 (July 1977) . From John Clark, Coastal Ecosystems Management : A Technical Manual for the Conservation of Coastal Zone Resources (New York: John Wiley and Sons Interscience, 1977). As defined in Elinor Lander Horwitz, Our Nation's Wetlands (Washington, D.C. : Government Printing Office, 1978). ! ( APPENDIX H MODEL STUDENT MANUAL: COASTAL FLOOD HAZARD MANAGEMENT AND NATURAL RESOURCE PROTECTION MODEL COASTAL STUDENT MANUAL* Prepared by The Conservation Foundation Washington, D.C. For The Federal Emergency Management Agency This manual is based on the model training program developed by The Conservation Foundation. It should not be reproduced as is — but should be revised for each Institute to reflect any changes made to CF's model program. BACKGROUND This training program on Flood Hazard Management and Natural Resource Protection was developed by The Conservation Foundation for The Federal Emergency Management Agency. The program has been designed for local officials and citizen leaders as a means to increase their knowledge of: • the basic requirements of the National Flood Insurance Program; • the ways in which ecological and hazard mitigation requirements come together in establishing principles for physical management of the flood-prone areas; • economic and social coincidences of interest and conflicts with flood management goals; and • the various other federal, state, and local programs that come together on the floodplain and that could potentially lead toward more effective implementation of a community flood management program and natural resource protection program. In addition, the program is intended to focus the attention of community leaders on means to disseminate the information provided in the training program throughout their community. Those of you who are participating in the training institute for which this workbook has been prepared come from communities who face flood problems. You have been invited to participate in this program because you hold a leadership position in your community and are in a position to influence community flood hazard mitigation decisions. It is our hope that this institute will provide you with an increased awareness of flood hazards, alternative management approaches, and methods for increasing public involvement in these key community resource decisions. -2- INSTITUTE SPONSORS FEDERAL EMERGENCY MANAGEMENT AGENCY FEMA is a new federal agency (created in March 31, 1979) responsible for the coordination of federal hazard mitigation efforts. The agency's specific responsibilities include over- seeing key emergency programs in dam safety, emergency warning systems and severe weather warnings, as well as disaster relief and community flood hazard mitigation through the National Flood Insurance Program. The central office, Training and Education Division of FEMA has provided the funding for this institute as part of a program of increased technical assistance to communities. THE CONSERVATION FOUNDATION Through research, citizen training and communication with opinion leaders in the United States and abroad, The Conservation Foundation encourages wise management of the earth's resources — its land, water, energy, air. A nonprofit organization, The Conservation Foundation designed and directed the training program of which this Institute is a part. REGIONAL COORDINATOR k ) -3- HOW TO USE THE INSTITUTE WORKBOOK This Workbook is designed to be the principal companion of each participant attending the Community Flood Hazard Mitigation Training Institute. It contains the detailed information needed to conduct each part of the Institute program. The Program in brief also acts as a table of contents for the remainder of the book. The remainder of the workbook is organized by program element, and each program element is followed by whatever discussion questions, exercises and case example material may be necessary to work through that part of the training program. Other materials prepared for your use by The Conservation Foundation include: "Flood Hazard Management and Natural Resource Protection: Community Action Guide" and "Community Action Guide Summary. " The Training Manual contains seven separate chapters that outline in some detail the essential components of a com- munity flood hazard mitigation and resource protection program highlighting the legal, environmental, social, and political factors that affect these decisions. The manual discusses fur- ther federal flood hazard mitigation initiatives. Particular attention is given to the NFIP and community responsibilities under that program. The chapters in the Training Manual are organized to both be read as a book and to address single essential questions that could arise during a community's flood hazard mitigation planning process. If you examine the table of contents for each chapter, you may find areas you would like to read while at the training institute. The manual is designed for yor use when you return home, however. We hope that it will assist you in understanding the nature of the complex decisions that must be made to achieve flood hazard mitigation and allow you to raise the questions necessary to affect your community's choice of mitigation approaches. The Community Action Guide Summary was mailed to you before the insititute and is designed for your use before and during the Institute and in conducting public involvement activities when you return home. It summarizes the larger guidebook, outlines the goals of effective public participation, and appropriate public participation mechanisms- We hope you will take the opportunity to read through this booklet while at the Institute, as it should be particularly helpful to you in outlining follow-up act ivities . -5- PROGRAM IN BRIEF DAY ONE Page 11:00 - 1:00 REGISTRATION Briefing for Discussion Leaders Location: 1:00 - 1:30 1:30 - 2:15 WELCOME AND INTRODUCTION Speakers : Location : INTRODUCTION OF PARTICIPANTS Discussion Leaders: Location: 2:30 - 4:00 FLOODING AND FLOOD HAZARD MANAGEMENT ON COASTAL AREAS: AN OVERVIEW Panel Members: Location: 4:00 - 4:45 ESTABLISHING THE GOALS OF COMMUNITY FLOOD HAZARD MANAGEMENT Discussion Leader: Location: 5:00 - 6:00 SOCIAL HOUR Location : 6:00 - 7:30 DINNER Location : -6- DAY ONE (continued) 7:30 - 9:30 THE NATURE OF FLOODING IN COASTAL COMMUNITIES AND THE SPECIAL ROLE OF COASTAL ECOLOGICAL RESOURCES IN FLOOD HAZARD MITIGATION Discussion Leaders: DAY TWO 8:30 - 8:45 Page (\ Locations : Location : 8:45 - 9:30 DESIGNING A FLOOD HAZARD MANAGEMENT PROGRAM: IDENTIFYING GOALS OPPORTUNITIES AND STRATEGIES Location: 9:30 - 10:45 THE FEDERAL AND STATE FRAMEWORK FOR COMMUNITY FLOOD HAZARD DECISION-MAKING Speaker : Panel Members: Location : 11:00 - 12:15 THE NATIONAL FLOOD INSURANCE PROGRAM: WHAT IT DOES AND DOESN'T DO Speaker : Panel Members Location: < 12:15 - 1:30 LUNCH DAY TWO (continued) 1:30 - 2:30 2:45 - 3:45 -7- FLOOD HAZARD MANAGEMENT ISSUES AND PROGRAMS Page Discussion Leaders: Location: LOCAL STRATEGIES FOR FLOOD HAZARD MITIGATION: CASE EXAMPLES Discussion Leaders: Locations : 4:00 - 5:00 THE ROLE OF PUBLIC PARTICIPATION IN COMMNITY FLOOD HAZARD DECISION-MAKING Speaker : Location : 6:30 - 7:30 DINNER Location : 7:30 - 9:00 RECOMMENDATIONS FOR GROUP ACTION Discussion Leaders: Locations : DAY THREE 8:30 - 9:30 ISSUES IN PUBLIC PARTICIPATION Discussion Leaders: Location : 10:00 - 12:00 DESIGNING A FLOOD HAZARD MANAGEMENT PROGRAM IN COASTAL COMMUNITIES Discussion Leaders: Locations : -8- DAY THREE (continued) Page 12:00 - 1:30 LUNCH Location : 1:30 - 3:00 FINAL SMALL GROUP DISCUSSIONS Discussion Leaders: Location : 3:30 - 4:30 CONCLUSION Speaker : Location: m -9- MODEL COASTAL STUDENT MANUAL WORKSHOP ON FLOOD HAZARD MANAGEMENT AND NATURAL RESOURCE PROTECTION: THE COASTAL SETTING DAY ONE 11:00 - 1:00 p.m. REGISTRATION 1:00 p.m. WELCOME Purpose : • To establish the major objectives of the Conference. • To introduce key staff and resource people. • To orient group to sequence of workshop session, time schedules, facilities, and administrative announcements. Activity: 9 Plenary session speaker. NOTES: * -10- 1:30 - 2:15 INTRODUCTION OF PARTICIPANTS Purpose : • To introduce community participants and their communities to one another • To establish the function of the working group at the conference. Activity : • Small group discussion sessions within the plenary room. NOTES: -11- 2:30 - 4:00 p.m. FLOODING AND FLOOD HAZARD MANAGEMENT IN COASTAL AREAS: AN OVERVIEW Purpose : • Create participant understanding of inherent complexities of coastal flood hazard management. • To give an historical perspective to coastal flood hazard management. • To address changing directins in coastal flood hazard management in response to the perceived weaknesses of the traditional approach . Activities : • Film • Reaction Panel Discussion • Audience Questions and Answers Review Questions 1. What are the special problems of protecting the coastal floodplain? (Dynamic nature of coastal floodplain, fragility of coastal ecosystem. ) 2. What is the relationship of watershed and drainage management to coastal flooding problems? 3. What kinds of difficulties are incurred in predicting the landfall and wind force of hurricanes? 4. In what manner do the special attractions of the beach contribute to social and economic difficulties in the management of coastal flood hazards? -12- 5. What are the weaknesses of traditional ^m approaches to coastal flood hazard management? 6. What are the changing directions in our current approach to coastal flood hazard management? References ; Flood Hazard Management and Natural Resource Protection; Community Action Guide , Chapters I and II. NOTES: • i - -13- '4 4:00-4:45 p.m. ESTABLISHING THE GOALS OF COMMUNITY FLOOD HAZARD MANAGEMENT Purpose : • To assist participants in establishing the target goals for which they will develop strategies. • To introduce participants to each other by helping them appreciate the different perspectives with which they approach flood hazard management. Activities : »') NOTES: ' • Exercise on Goals (Exercise A attached) • Group Discussion Review Questions 1. What are the most important goals to consider in developing a community flood hazard management program? 2. How do various interest groups differ in their assessment of goals? 3. How can or should other community goals be integrated with flood hazard management goals? References : Flood Hazard Management and Natural Resource Protection: Community Action Guide , Chapter III. -14- Exercise A Goals for Community Flood Hazard Management Of the goals listed below, which do you feel are the four most important to accomplish in developing a community flood hazard management program? Rank/Goals 1 Minimize fiscal impact of floods. 2 Reduce erosion and sedimentations. 3 Reduce property loss. 4 Preserve natural areas. 5 Protect safety of population. 6 Reduce flood damage to public property. 7 Distribute management costs fairly. 8 Preserve open space and recreation. 9 Maintain good water quality. 10 Encourage economic development. Which of the following categories of interest groups do you most closely identify with? 1 Local officials. 2 State officials. 3 Floodplain resident. 4 Local businessman (economic interests). 5 Environmentalists. 6 Civic group member (Red Cross, church group) -J.D- 4:30 p.m. BREAK 5:00 p.m. SOCIAL HOUR 6:00 p.m. DINNER 7:30 - 9:00 p.m. THE NATURE OF FLOODING IN COASTAL COMMUNITIES AND THE SPECIAL ROLE OF COASTAL ECOLOGICAL RESOURCES IN FLOOD HAZARD MITIGATION Purpose : • To assist participants in identifying and understanding the causes of flooding and the nature of flood hazards in their community. • To help participants understand the functioning of important coastal eco- systems for hazard mitigation purposes. • To familiarize participants with various uses of natural resource data and maps as community planning and decision-making tools. Activities : • Six to eight concurrent small group sessions which discuss the special ecological characteristics of: a) Beaches and oceans b) Estuaries and bay areas c) Tidal rivers • Land Use Suitability Analysis — Mapping Exercise Review Questions 1. What are the key coastal ecological resource types? 2. Where do they commonly occur? (In what associations? ) -16- 3. How sensitive are these resources to the activities of man? 4. What role do each of these resources play in flood hazard mitigation? 5. How can these resources be protected? What management policies should be applied? 6. What is a suitable community base map? (scale and availability) 7. What environmental factors or values are of particular importance to the community? (i.e., septic tank siting, hazard mitigation, etc. ) What is the purpose or goal for the mapping project? 8. What technique, medium or materials are most appropriate to use in representing this information? How much will it cost? References ; Flood Hazard Management and Natural Resource Protection; Community Action Guide , Chapter II. NOTES: -17- **' IDENTIFYING NATURAL RESOURCE AND FLOOD HAZARD DATA SOURCES FOR DECISION-MAKING WORKSHOP MATERIALS » v* -19- BASE MAPS MAP SCALE « There are three categories of base maps: planimetric, topographic, and ortho- photo. A planimetric map shows roads, structures, political boundaries, and waterways, etc. in two dimensions. It illustrates hori- zontal positioning, not the height of hills or valleys. A photogrammetric planimetric map is a planimetric map which has been prepared from aerial photographs and has been corrected so that horizontal measure- ments taken from the map accurately reflect the distance on the ground within a certain tolerance. A topographic map shows the type of information illustrated on a planimetric map plus it has contour lines to show hills and valleys of the land, drainage patterns and the steepness of slopes. A photogrammetric topographic map is a topographic map which has been prepared from aerial photographs and has been corrected so that both horizontal and vertical measurements taken from the map accurately reflect the distances and elevations on the ground within a certain tolerance. An orthophoto map is a map composed of a corrected aerial photograph on which features such as road names, place names, property boundaries, and political boundaries have been added. All the features which appear on an aerial photograph also appear on an ortho- photo map. Map scale defines the relation- ship between the measurements of the features as shown on the map and as they exist on the Earth's surface. Scale is generally stated as a ratio or fraction — 1:24,000 scale, 1 inch = 2,000 feet. Area shown, 1 square mile 1:62,500 scale, 1 inch = about 1 mile. Area shown, 6% square miles 1:250,000 scale, 1 inch = about 4 miles. Area shown, 107 square miles 1. Barbara Maire et. al, Wetlands and Floodplains on Paper (Lincoln, Mass Massachusetts Audubon Society, undated) 2. U.S.G.S., Topographic Maps (Washington, D.C.: Government Printing Office, 1972) -20- cu M X o o o Eh u H W o o Eh O S z o 2 o H < z M ■J u o < Cm Q O O ■J Cn z o H < 3 w a v) ^Z iO U(J °H < a. u Q o. J 9 1*5 2 5iia « B ln|}i:i 'v* < _J Q. 21 FLOODPLAIN DELINEATION ON AN ORTHOPHOTO MAP I ^ ! •> -2 3- TOPOGRAPHIC MAP SYMBOLS VARIATIONS WILL BE FOUND ON OLDER MAPS tihway, hard surface Secondary highway, hard surface Light-duty road, hard or improved surface Unimproved road Road under construction, alinement known Proposed road Dual highway, dividing strip 25 feet or less. Dual highway, dividing strip exceeding 25 feet Trail Railroad single track and multiple track Railroads in juxtaposition Narrow gage, single track and multipi> Railroad in street and carhne Bridge, road and railroad Drawbridge, road and railroad Footbridge Tunnel: road and railroad rpass and underpass Small masonry or concrete dam Dam with lock Dam with road Canal with lock Buildings (dwelling, place of employment, etc.) School, church, and cemetery Buildings (barn, warehouse, etc.) Power transmission line with located metal tower Telephone line, pipeline, etc, (labeled as to type) Wells other than water (labeled as to type) Tanks: oil, water, etc. (labeled only if water) Located or landmark object, windmill Open pit. mine, or quarry, prospect Shaft and tunnel entrance O , .1 Horizontal and vertical control station: Tablet, spirit level elevation Other recoverable mark, spirit level elevation 455 Horizontal control station: tablet, vertical angle elevation vABr/A9s/s Any recoverable mark, vertical angle or checked elevation Vertical control station, tablet, spirit level elevation BMX957 Other recoverable mark, spirit level elevation X954 Spot elevation x 7369 Water elevation 670 Boundaries: National State County, parish, municipio Civil township, precinct, town, barrio Incorporated city, village, town, hamlet Reservation. National or State Small park, cemetery, airport, etc. Land grant Township or range line, United States land survey Township or range line, approximate location Section line. United States land survey Section line, approximate iocation Township line, not United States land survey Section line, not United States land survey Found corner, section and closing Boundary monument: land grant and other Fence or field line Index contour Supplementary contour Fill Levee Mine dump Tailings Shifting sand ordunesL Sand area Intermediate contour Depression contours Cut Levee with road Wash Tailings pond Intricate surface . Gravel beach Perennial streams Elevated aqueduct Water well and spring Small rapids Large rapids Intermittent lake Foreshore flat Sounding, depth curve Exposed wreck . Intermittent streams Aqueduct tunnel . Glacier Small falls Large falls Dry lake bed Rock or coral reef Piling or dolphin Sunken wreck Rock, bare or awash: dangerous to navigation Marsh (swamp) Wooded marsh Woods or brushwood Vineyard Land subject to controlled inundation Submerged marsh Mangrove . Orchard Scrub Urban area I I -24- MILE SCALE 1:62 500 UNITED STATES DEPARTMENT OF THE INTERIOR GEOLOGICAL SURVEY TOPOGRAPHIC MAP INFORMATION AND SYMBOLS MARCH 1978 QUADRANGLE MAPS AND SERIES Quadrangle maps cover four-sided areas bounded by parallels of latitude and meridians of longitude. Quadrangle size is given in minutes or degrees. Map series are groups of maps that conform to established specifications for size, scale, content, and other elements. Map scale is the relationship between distance on a map and the corresponding distance on the ground Map scale is expressed as a numerical ratio and shown graphically by bar scales marked in feet, miles, and kilometers. NATIONAL TOPOGRAPHIC MAPS Series Scale 1 inch represents 1 centimeter represents Standard quadrangle size (latitude-longitude) Quadrangle area (square miles) 1:24,000 1:25,000 1:20,000 1:62,500 1:63,360 1:100,000 1 :250,000 1:1,000,000 1:250,000 1:500,000 2,000 feet about 2,083 feet about 1 ,667 feet nearly 1 mile 1 mile nearly 1.6 miles nearly 4 miles nearly 16 miles nearly 4 miles nearly 8 miles 240 meters 250 meters 200 meters 625 meters nearly 634 meters 1 kilometer 2.5 kilometers 10 kilometers 2.5 kilometers 5 kilometers 7Vi x Vh mm. 7V4X 15 mm. 7V4X714 mm. 15* 15 min. 15X20 to 36 min. 30x 60 min. l°X2°or 3° 4°X6° 1°X3° to 15° 2°x 7Vi° 49 to 70 98 to 140 71 197 to 282 207 to 281 1568 to 2240 4,580 to 8,669 73,734 to 102,759 4,089 to 8.336 28,174 to 30,462 Puerto Rico 7'A-minute Alaska 1:63.360 U. S 1:250,000 U. S. 1:1,000,000 . . Antarctica 1:250,000 . Antarctica 1:500,000 CONTOUR LINES SHOW LAND SHAPES AND ELEVATION The shape of the land, portrayed by contours, is the distinctive characteristic of topographic maps. Contours are imaginary lines following the ground surface at a constant elevation above or below sea level. Contour interval is the elevation difference represented by adjacent contour lines on maps. Contour intervals depend on ground slope and map scale Small contour intervals are used for flat areas; larger intervals are used for mountainous terrain. Supplementary dotted contours, at less than the regular interval, are used in selected flat areas. Index contours are heavier than others and most have elevation figures. Relief shading, an overprint giving a three-dimensional impression, is used on selected maps. Orthophotomaps, which depict terrain and other map features by color-enhanced photographic images, are available for selected areas. COLORS DISTINGUISH KINDS OF MAP FEATURES Black is used for manmade or cultural features, such as roads, buildings, names, and boundaries. Blue is used for water or hydrographic features, such as lakes, rivers, canals, glaciers, and swamps. Brown is used for relief or hypsographic features — land shapes portrayed by contour lines. Green is used for woodland cover, with patterns to show scrub, vineyards, or orchards. Red emphasizes important roads and is used to show public land subdivision lines, land grants, and fence and field lines. Red tint indicates urban areas, in which only landmark buildings are shown Purple is used to show office revision from aerial photographs. The changes are not field checked. INDEXES SHOW PUBLISHED TOPOGRAPHIC MAPS Indexes for each State, Puerto Rico and the Virgin Islands of the United States, Guam, American Samoa, and Antarctica show available published maps. Index maps show quadrangle location, name, and survey date. Listed also are special maps and sheets, with prices, map dealers, Federal distribution centers, and map reference libraries, and instructions for ordering maps. Indexes and a booklet describing topographic maps are available free on request. HOW MAPS CAN BE OBTAINED Mail orders for maps of areas east of the Mississippi River, including Minnesota, Puerto Rico, the Virgin Islands of the United States, and Antarctica should be addressed to the Branch of Distribution, U.S. Geological Survey, 1200 South Eads Street, Arlington, Virginia 22202. Maps of areas west of the Mississippi River, including Alaska, Hawaii, Louisiana, American Samoa, and Guam should be ordered from the Branch of Distribution, U. S. Geological Survey, Box 25286, Federal Center, Denver, Colorado 80225. A single order combining both eastern and western maps may be placed with either office. Residents of Alaska may order Alaska maps or an index for Alaska from the Distribution Section, U.S. Geological Survey, Federal Building-Box 12, 101 Twelfth Avenue, Fairbanks, Alaska 99701. Order by map name, State, and series. On an order amounting to $300 or more at the list price, a 30-percent discount is allowed. No other discount is applicable. Prepayment is required and must accompany each order. Payment may be made by money order or check payable to the U. S. Geological Survey. Your ZIP code is required. Sales counters are maintained in the following U. S. Geological Survey offices, where maps of the area may be purchased in person: 1200 South Eads Street, Arlington, Va.; Room 1028, General Services Administration Building, 19th & F Streets NW, Washington, D. C; 1400 Independence Road, Rolla, Mo.; 345 Middlefield Road, Menlo Park, Calif.; Room 7638, Federal Building, 300 North Los Angeles Street, Los Angeles, Calif.; Room 504, Custom House, 555 Battery Street, San Francisco, Calif.; Building 41, Federal Center, Denver, Colo.; Room 1012, Federal Building, 1961 Stout Street, Denver Colo.; Room 1C45, Federal Building, 1 100 Commerce Street, Dallas, Texas; Room 8105, Federal Building, 125 South State Street, Salt Lake City, Utah; Room 1C402, National Center, 12201 Sunrise Valley Drive, Reston, Va.; Room 678, U. S. Court House, West 920 Riverside Avenue, Spokane, Wash.; Room 108, Skyline Building, 508 Second Avenue, Anchorage, Alaska; and Federal Building, 101 Twelfth Avenue, Fairbanks, Alaska. Commercial dealers sell U. S. Geological Survey maps at their own prices. Names and addresses of dealers are listed in each * State index. -GEOLOGiCA 009 Z9- X 31VDS lOOd 000 51 00001 ooos 1 1 1 1 1 1 1 1 1 -25- * CONTOUR LINES A contour line is an imaginery line drawn on the ground which connects points of the same altitude or elevation. The contour interval is the vertical distance (difference in elevation! separating contour lines. While contour intervals between maps may vary, on any single map the interval is constant. The horizontal spacing of the contour lines, therefore, varies with land slope. In general, the closer the contour lines the steeper the slope. Wide spacing between lines indicates more gentle slopes. When contour lines cross streams the contour is bent into a V, the V points in the upstream direction. COMPARISON OF CONTOUR INTERVALS % 10' CONTOUR INTERVAL. opes 2' CONTOUR INTERVAL. 1. Barbara Maire et. al, Wetlands and Floodplains on Paper (Lincoln, Mass.: Massachusetts Audubon Society, undated) •) -26- THE SOIL SURVEY Man is dependent on soils. Soils provide the habitat for plants and crops; the foundations for buildings and roads; and receptacles for domestic, municipal, industrial and animal wastes. Soil management should be a fundamental planning concern and the soil survey is an essential planning tool. The soil survey, conducted by the Soil Conservation Service, provides the basic information needed for planning including: a map depicting different soil types and a description of the properties and limitations of these soils. Of particular interest for land use planning are the soil's "engineering properties" and "engineering interpreta- tions." These interpretations indicate the suitability of areas for different uses. For example, the suitability of areas for homebuilding sites involves an evaluation of the flood hazards, height of the water table, slope of the land, shrink-swell potential of the soil and depth of the soil to hard rock. 1 The suitability of a site for septic tanks is rated according to the permeability of the soil (the ease with which water penetrates the soil) , the land slope, filtering capacity, level of the water table, and potential for flooding. 2 Additional suitability interpretations include use for highways, ponds or reservoirs, and recreation. Soils maps, themselves, are very useful for floodplain delineation. Soils which are deposited by running water (called alluvial soils) or soils which are frequently covered by water differ in texture, color, or structure from those which develop under drier conditions. Such soils will, therefore, have classifications different from non-flood-prone soils. Attached is a chart depicting the soil suitability interpretations and a brief description of the major soil types found on the map sheet to be used in this exercise. Those soils which have developed under wet conditions or were deposited by running water can be identified from these descriptions. By drawing boundaries around these soil tvpes it is possible to make a rough delineation of the flood hazard area. 1. U.S. Department of Agriculture, Soil Conservation Service, Soil Survey For Wake County, North Carolina . (Washington, D.C.: GPO, 1970) 2. Ibid. -27- KEY ZONING 45 46 47 48 49 50 51 52 53 54 71 99 Residenti al Commercial Heavy Industrial Light Industry Forest Agriculture Conservation/Preservation Historic Building District Mobi 1 e Home Dest i nat i on Park Planned Development Port/GAPC Unclassified and/or Water DEVELOPMENT- 110 "Residential 120 Retail/Wholesale 130 Industrial 140 Extractive 150 Transportation 160 Institutional 190 Open and Other Urban 200 Agriculture *) SOILS: 10 Leon 12 Eunola 13 Bladen 18 Cape Fear 20 Centenary 27 Rutlege 28 Echaw 34 Johnston 50 Lynn-Haven 54 Chipley 55 Witherbee 57 Grifton (Ogeechee) 59 Wahee 61 Yemassee 251 Wakulla 602 Lakeland (Wando) 500 Open Water 99 Unclassified ■^ WETLA 400" 440 500 510 610 620 621 623 624 630 720 KDS : Fore Logg Bru Open Impo Fore Unfo Sale Brae Fres Aban 631 632 633 634 Beac st ed sh W un st re M ki h do L H B F h Area/ ater dment s ed Wetlands sted Wetlands arsh sh Water Marsh Water Marsh ned Rice ow Salt Marsh i gh Sale Marsh rackish Marsh reshwater Marsh * -28- SOILS: GEORGETOWN SOUTH, S.C. Leon (10) Poorly drained sandy soils with slopes less than 5%. Eulonia (12) Deep moderately well drained soils on the lower coastal plain. Slopes less than 2%. Bladen (13) Poorly drained soils occurring on broad nearly level flats of the coastal plains. Cape Fear (18) Nearly level, very poorly drained soils on stream terraces and low uplands of the coastal plain. Flooding of brief duration is frequent from January to May. Centenary (20) Sandy, moderately well drained, rapidly permeable soils of the coastal plain. Slopes are less than 2%. Rutlege (27) Deep, very poorly drained soils of upland flats and in depressions. Slopes are less than 2%. Flooding of brief duration is frequent. Echaw (28) « Moderately well drained, permeable soils on level eroded ridges and flats of the lower coastal plain. Johnston (34) Very poorly drained soils on nearly level flood plains of the coastal plain. Flooding, sometimes of long duration, is common. Lynn Haven (50) Poorly drained sandy soils with slopes of less than 2%. Witherbee (55) Sandy, somewhat poorly drained, rapidly permeable soils on nearly level broad ridges and flats of the lower coastal plain. Slopes of less than 2%. Grifton (57) Poorly drained soils on the middle and lower coastal plain uplands and stream terraces. Slopes are generallv less than 2%. Wahee (59) Poorly drained, slowly permeable, soils of the coastal plains. Slope range to 4%. Flooding, of brief duration, is common on some of these soils. I 9) -29- Yemassee (61) Poorly drained, nearly level soils on the lower coastal plain. Some rare flooding. Wakulla (251) x Nearly level to sloping, well drained soils on upland and stream terraces of the coastal plain. Slopes range from 0-10%. Lakeland (602) Very well drained nearly level to steep soils on coastal plain uplands. Slopes range from to 30%. -30- s It 1 Ci M •a n —. 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M M- N. z K 0) fD fD fD ro M o to O rt rt K t € > O fD fD ro » G O rt rt rt M >-3 3 3 3 3» 3 CO CO fD fD fD to S 01 01 CO CO CO n 3 3 CO CO CO n > ft ft » 50 ^ *< ra > ►3 O tr" M to to to to to M z (0 ID (D fD ro T3 O > < < < < < tr 1 z ro fD fD fD ro > «. M H. H. i-t k; ro fD fD fD ro 50 O rt ft s £ t G o O fD fD ro Z O rt 3 rt 3 rt 3 a to CO D (D fD ro Q) 0) CO CO co 3 3 CO CO CO ft ft *< ■< cn to to to w ro (D (D fD ro < < < < < fD fD fD fD ro N * n N. K -3 CD fD fD fD ro 5 M ft ft s: t t r O O fD fD ro to O O rt 3 ft 3 rt 3 CO CO fD ID ro 01 pi CO CO co 3 3 CO CO co ft ft ^< K — ) For example, Point X is midway between cross sections AP and AQ . To determine the flood water elevation at that point: locate the point on the flood line you're interested in. (Point X is plotted on the 100-year flood line.) Read the vertical axis to obtain the water elevation. The 100-year flood elevation at Point X is 594.1 feet (above mean sea level) . To determine by how much a structure should be elevated to be above the base flood, subtract the ground elevation of the site from the flood elevation at the site. - . i -44- Reading a Flood Boundary and Floodway Map A Flood Boundary and Floodway Map identifies the boundaries of the floodway and the 100-year, and 500- year flood. The map also indicates the location_of stream_cross sections ( <^> ) • With references to the Flood Profile specific flood elevations may be determined at any site. To locate a site on the map: Obtain the ground distance between the site and two or more points identified on the map (i.e., center- line of a street, bridge or reference mark) . Convert the ground distances to map distances and plot the site on the map. Example: Point X is 200 feet west of the intersection of Lavender and Elm Streets and 200 feet southeast of the intersection of Rosessler and Elm Streets. Point X is not within the floodway. KEY TO SYMBOLS FLOOD BOUNDARY AND FLOODWAY DATA 500 Yr Flood Boundary 100 Yr Flood Boundary 500 Yr Flood Boundary Approximate 100 Yr Flood Boundary Cross Section Line Elevation Reference Mark River Mile <°> RM7. M1.5 Note: Boundaries of the floodways were computed at cross sections and interpolated between cross sections. The floodways were based on hydraulic considerations without regard to economic, legal, or political factors. DEPARTMENT OF HOUSING AND URBAN DEVELOPMENT Federal Insurance Administration FLOOD BOUNDARY AND FLOODWAY MAP MAP INDEX CITY OF FLOODVILLE, Ml FLOOD CO. COMMUNITY NO. 314159 * ) » -46- Reading a Flood Insurance Rate Map The Flood Insurance Rate Map (FIRM) indicates the risk zones (for insurance purposes) within the flood hazard area, and map representations of 100-year flood elevation. Use the flood profile for specific site elevations. Point X is within insurance rate zone A5. KEY TO SYMBOLS ZONEB ZONE DESIGNATIONS" WITH DATE OF IDENTIFICATION ie„ 12/2/74 Base Flood Elevation Line with elevation in feet Base Flood Elevation where uniform within zone Elevation Reference Mark River Mile ZONCA5 DATE ZONEB ~57J- (EL987'MSL) RM7 x • M1.5 'EXPLANATION OF ZONE DESIGNATIONS A flood insurance map displays the zone designations for a community according to areas of designated flood hazards. The zone designations used by F I A are: Zone Explanation A Areas of 100-year flood; base flood elevations and flood hazard factors not determined. AO Areas of 100-year shallow flooding; flood depth 1 to 3 feet; product of flood depth (feet) and velocity (feet per second) less than 15. A1 - A30 Areas of 100-year flood; base flood elevations and flood hazard factors determined. A69 Areas of 100-year flood to be protected by a flood protection system under construction; base flood elevations and flood hazard factors not determined. B Area between limits of 100-year flood and 500-year flood, areas of 100-year shallow flooding where depths less than 1 foot. C Areas outside 500-year flood. D Areas of undetermined, but possible, flood hazards. V Areas of 100-year coastal flood with velocity (wave action); base flood elevations and flood hazard factors not determined. VO Areas of 100-year shallow flooding with velocity; flood depth 1 to 3 feet; product of depth (feet) and velocity (feet per second) more than 15. V1 - V30 Areas of 100-year coastal flood with velocity (wave action); base flood elevations and flood hazard factors determined. CONSULT NFIA SERVICING COMPANY OR LOCAL INSURANCE AGENT OR BROKER TO DETERMINE IF PROPERTIES IN THIS COMMUNITY ARE ELIGIBLE FOR FLOOD INSURANCE. INITIAL IDENTIFICATION DATE: FEBRUARY 1, 1975 DEPARTMENT OF HOUSING AND URBAN DEVELOPMENT Federal Insurance Administration FLOOD HAZARD BOUNDARY MAP H ■ 01 -23 FLOOD INSURANCE RATE MAP I • 01 -23 MAP INDEX CITY OF FL00DVILLE, Ml (FLOOD CO.) COMMUNITY NO. 314159 -49- 12:15 p.m. LUNCH 1:30 FLOOD HAZARD MANAGEMENT: ISSUES AND PROGRAMS Purpose : • To allow participants to explore in more detail the various issue and programs described in the morning sessions. Activity: • Concurrent small group sessions in the following areas: — building standards; — NFIP regulations; — 1362; -- flood hazard mapping; — Coastal Zone Management Review Questions A. Building Standards 1. What requirements of the NFIP relate to buildings? Do these requirements only deal with the impact of floods or do they also address other special needs of building in hurricane prone areas. 2. What specific provisions should be included in local building codes to insure that elevated new structures are built to withstand hurricane force winds? storm driven waves? 3. What lessons can be learned from experience in communities recently hit by hurricanes (Gulf Shores, Alabama, Dauphin Island, Mississippi )? 4. What problems might building inspectors anticipate in enforcing standards? 5. How do building requirements of the NFIP relate to the acturially based insurance rates used by FEMA in coastal high hazard areas? -50- B. NFIP Regulations 1. What are the minimum requirements of the NFIP (Regular Phase) in terms of elevations, construction, and land use? 2. What specific requirements does the NFIP pose for new construction in the high velocity zone? 3. On what basis have elevation requirements been established in the past? How will wave heights be factored into the formula for establishing actuarial rates for new construct ion? 4. To what extent are barrier islands, dunes, and other fragile coastal ecosystems pro- tected under the NFIP regulations? C. Section 1362 (Post Disaster Acquisition/ Relocation under NFIP) 1. What is Section 1362? What are its major provisions? 2. How is Section 1362 being implemented currently? How much money has been appropriated? 3. How is eligibility for 1362 funds determined? What procedures must communities follow to acquire 1362 funds? 4. What restrictions are placed on the use of 1362 funds? D. Flood Hazard Mapping 1. What role do maps play in the NFIP? 2. What is the status of FIA's community mapping process? 3. What is the data base of the community map? What are the sources of possible error in flood hazard boundary mapping? What kinds of changing conditions might affect the communities of flood hazard boundary? -51- 4. What is the process of amending maps to reflect changing conditions? 5. How are existing maps going to be amended to reflect wave height data? How long will the process take? What should communities do in the interim before their maps are amended to regulate new development in high velocity zones? 6. What is the status of the new FIA map locator service? E. Coastal Zone Management 1. What's being done at the Federal level to coordinate coastal zone management and flood hazard mitigation? 2. How might an approved state coastal zone management plan be useful to a community in achieving flood hazard mitigation goals? 3. What types of assistance are available to communities from the state CZM office? References : Flood Hazard Management and Natural Resource Protection; Community Action Guide, Chapters IV, V and VII. NOTES: -52- 2:30 p.m. BREAK 2:45 - 3:45 p.m. LOCAL STRATEGIES FOR FLOOD HAZARD MITIGATION: CASE EXAMPLES Purpose : • To allow participants to examine in detail the way a particular community utilizes a strategy (or set of strategies) to accomplish flood hazard mitigation goals . • To focus attention on the stages of flood hazard management (pre and post) to which the strategy was applied. • To highlight the role of various federal, and state programs (NFIP, CZM, WQM) in accomplishing the strategy. • To relate the strategies to the goals of flood hazard mitigation identified previously. Activity : • Concurrent small group sessions on community case examples which address a variety of flood hazard management strategies. For example: — relocation; -- recreation/acquisition; — storm water management; -- zoning; — critical areas protection; — development with sensitivity to ecosystems. Review Questions 1. What are the major flooding problems in the community? 2. What are the estimated costs to the community of recurrent floods? NOTES : -53- 3. What opportunities did the community identify to begin to address their flooding problems? In the pre-flood situation? In the post-flood situation? 4. What specific flood hazard management strategies were proposed? Which ones were rejected and why? Which ones were adopted? 5. Who were the actors involved in the decision-making process? How were they involved? 6. What community, state and federal resources were required to implement the particular strategy? How were these resources obtained? 7. What lessons have been learned by community leaders in the process? What things might they approach differently if they were to start over again? References ; Flood Hazard Management and Natural Resource Protection; Community Action Guide , Chapters III and V. -19- -54- 4:00 - 5:00 p.m. THE ROLE OF PUBLIC PARTICIPATIN IN COMMUNITY FLOOD HAZARD DECISION MAKING (PLENARY) Purpose : • To establish the importance of involving various publics in developing a community flood hazard management program. — Building a constituency for a comprehensive progrm. — Ensuring equity. — Building a constituency for implementation. • To establish some performance standards for effective public participation. • To expose participants to the range of techniques that are available for public involvement. » Activities: • Speech • Diverse Public Perspectives (see Exercise C attached) • Roundtable Discussion • Audience Questions and Answers Review Questions 1. Who are the key actors both within and outside of the community who should be involved in the development of a community flood hazard management program? What range of perspectives are they likely to represent and why is it important to include them? 2. What are some of the key decision points in the development of a flood hazard management program where the public should be involved. What specific kinds of information/input can the various publics provide at each of these decision points? I i> NOTES t> -55- 3. What role can or should the public play during implementation of the flood hazard management program? 4. To what extent in the past has the public been involved in developing a community flood hazard management program? What methods were used? What has been the result of this level of involvement? 5. Does the NFIP have any specific require- ments or guidance for public involvement? 6. What are some of the essential elements of an effective community public involve- ment effort? What are some of the tech- niques which may be most useful in achieving quality public participation? 7. What are some potential sources of assistance to communities in developing a meaningful public participation effort? References ; Flood Hazard Management and Natural Resource Protection; Community Action Guide , Chapter VI. -56- EXERCISE C INTRODUCTION OF PARTICIPANTS Participants for the Flood Hazard Institute were chosen to represent a diversity of opinions and backgrounds. The purpose of this segment of the program is to give everyone a better understanding of the attitudes and perspectives shared by fellow attendees, resource people, and Institute staff. DIRECTIONS FOR EXERCISE: Indicate your opinion on each question by marking the horizontal line with an "x" above the appropriate number. Then indicate how strongly you care about this issue by circling a letter from A (very important issue) to E (unimportant issue) on the vertical line. You will have ten minutes to mark your responses, and then we will sample opinion in the group. 1) How much weight should be given to public opinion in the development of a community flood hazard management program? A ( The decisions involve complex technical issues and should be made by experts Equal weight should be given to public opinion and expert conclusions . The important decisions in developing a flood hazard management program are not that technical, and the public, who has to live with the results, should have the primary say. very impor- tant issue ) B C ( D ( moder- ately impor- tant) unim- portant issue ) -57- EXERCISE C (continued) 2) Granted that most people would like to see both environmental improvement and low taxes and economic development , how would you vote in a clear-cut choice between the economy and the environment in your town? The economic stability of a community is the most important consi- deration. After all if people don't have jobs and money to spend they won't care about their environment. Equal weight given to both (very impor- tant issue) Maintaining the community's B environmental quality is most important. Poor C (moder- environmental ately quality produces impor- all sorts of tant) hidden community costs which too D often aren't considered . E (unim- portant issue) 3) Should residents who knowingly choose to live in flood hazard areas be assessed some sort of tax to cover the community costs (emergency police, fire, rescue services, public utility repairs, warning and evacuation procedures) incurred as the result of a flood disaster? No, these are costs rightly borne by the community as a whole. Besides, it would be impossible to establish an equitable tax. Possibly in situations where the flood hazard is well defined and the resident who has a choice between a non- hazard location chooses the hazardous location because of the personal benefits (aesthetics, convenience) derived from the hazardous location. Yes, these residents reap the benefits of such a location, so they should also bear the costs. -58- 5:30 - 6:30 p.m. SOCIAL HOUR 6:30 - 7:30 p.m. DINNER 7:30 p.m. RECOMMENDATIONS FOR GROUP ACTION Purpose : • To continue the working group identified the first evening and give that group opportunities to develop ideas for follow-up activities after the conference. Activity : • Small group sessions Review Questions 1. What are the major flooding problems in your community? What are the most important first steps to be taken to resolve these problems? 2. What role does your state play in encouraging community flood hazard management? How might the state role be enhanced? 3. Given the flood hazard management opportunities which exist in your community, what are likely to be the most effective strategies available to realize these opportunities? 4. Who are the key people in your community, region, state who should be involved in flood hazard management decision-making? Are they now involved? 5. What kinds of public involvement mechanisms may be utilized to involve members of the various publics in your community in the development of a flood hazard management program? t €> -59- 6. What are the first steps to be taken when you return home to ensure that a public involvement program to develop a flood hazard management program actually materializes? References ; Flood Hazard Management and Natural Resource Protection: Community Action Guide , Chapters III and VI. NOTES J -60- DAY THREE 8:30 - 9:30 a.m. ISSUES IN PUBLIC PARTICIPATION Purpose : • To allow participant to focus on the issues and tools that influence the development of a successful public involvement program. Activities : • Concurrent small group workshops on public participation issues and tools. These workshops might cover such topics as: — goal setting — Coalition building — Bargaining and negotiation — Communication tools — motivating the public Review Questions A. Goal Setting 1. Who in the community should be involved in the setting of goals for a flood hazard management program? How can or should broader community goals be reflected? 2. How do you identify community goals? What techniques (questionnaires, local workshps, referendum) are most useful? How can you ensure that the goals you identify in fact reflect those of the entire community? 3. What do you do in situations when some goals seem to be in direct conflict? What are some effective methods for achieving compromise? B. Coalition Building 1. How can building e coalition help the passage and implementation of a community flood hazard management program? -61- 2. What interests should comprise your coalition How may these interests be identified? 3. How does one identify the common interests which may bind a coalition? 4. What kinds of organizational decision-making will help keep a coalition together? 5. What resources, skills and outreach ability do the various interest groups which might comprise a coalition have which might be utilized in developing a comprehensive flood hazard management program? C. Bargaining and Negotiation 1. When is formal bargaining or negotiation useful? 2. How do you establish those points which are not negotiable? Those that are? 3. How do you identify tradeoffs that various groups may be willing to make to come to agreement? 4. How do you approach an opposing group on the subject of bargaining? 5. When is it useful to have a third party assist in the bargaining process? 6. What type of technical expertise might be required during a negotiation process? 7. If a third party negotiator is used, what skills should he/she have? D. Communication Skills 1. What are some of the most effective means to reach the general public? (news media, public television) What basic message should be relayed to different publics? 2. How should materials be presented to the general lay audience? How can you trans- late complicated technical analysis into simple English? -62- 3. How can you be sure your message is being received and clearly understood? What kinds of feedback mechanisms are appropriate? E. Motivating the Public 1. How do you overcome initial public apathy or unawareness? What techniques could you use to "sell" your program to the public? 2. What are some of the causes of public apathy? How do you overcome them? 3. What are some examples of techniques which have worked in other communities? 4. How do you keep the public involved and interested? References ; Flood Hazard Management and Natural Resource Protection; Community Action Guide , Chapter VI. Flood Hazard Management and Natural Resource Protection; Community Action Guide , Appendices . NOTES; -63- 9:30 - 10:00 a.m. BREAK AND SWITCH 10:00 - 12:00 noon DESIGNING A FLOOD HAZARD MANAGEMENT PROGRAM IN COASTAL COMMUNITIES Purpose : • To examine in a realistic setting the factors tht affect the opportunities for flood hazard management in coastal communities. • To examine the basic regulatory frame- work likely to result from community participation in the NFIP, and other Federal and State programs. • To examine the range of strategies and tools that might be linked together to develop a comprehensive flood hazard management program according to the appropriate flood hazard management stage. • To identify the economic and social interests that may be affected by alter- native strategies. • To explore the range of public partici- pation techniques which would be useful when selecting and implementing a compre- hensive community flood hazard management program. • To establish the tradeoffs that must be made by a community in designing a flood hazard management program. Activities : Participants will divide into six to eight groups, each of which will utilize a single hypothetical case example (included in the workbook) as a starting point for discussion Each case study contains information on the following factors that affect and/or constrain opportunities for flood hazard management. > -64- — physical characteristics; — population; — flooding problems; — economic and social considerations; — political context; — additional institutional considerations; Community maps on present land ues and flood hazard areas are included. Par- ticipants will draw on the case study material and their own experiences to address range of questions. Review Questions ; 1. Who are the interests with a stake in flood hazard management? 2. What is the nature of their stake? 3. What needs of various interests will have to be met in order to obtain their support in meeting flood hazard management goals? Local government Low income Business Banker Real estate developer Salesman Industry/Land Water dependent/Water based industry Civic Leader Environmentalist 4. What kinds of tradeoffs (economic/social/ environmental/political) might various interests be willing to make? 5. What kinds of strategies can be adopted to reflect these tradeoffs and to respond to the flooding problems of this community? In the pre-flood period? In the post- flood period? 6. What are the likely impacts of various strategies on various interest groups? On community as a whole? l> -65- Ref erences : Flood Hazard Management and Natural Resource Prot ection: Community Action Guide , Chapters III, VII, and VIII. NOTES ~ v. -30- -67- o x: OJ "5 JJ > OJ 1 V -H ■H a JJ JJ 01 J to JJ o 01 JJ B c V) U-l >. 4J 01 O JJ ■0 CO rt -0 01 c CI) •0 CO JJ c 0> 01 u >! 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(0 •H < rfl a w CU W & •H o CO rH. u >a H3 CU 4-> CU t-o 4-> o x CO O 4-1 -H iH T3 CO 4J 5h 54 CO -H C CO •H •H c *» CU c P H 54 ■H n qui T3 C •H Cu CO « -H CJ 0H 54 CU 0) 4-> cu U CU CU iH cu u a M 5-1 54 CU cu x: CU 4-> CO o < o a O O CU M-t RREflS 3 5 m.l«i 1 milts N 82- ATLRNTIC OCERN WILTON ISLAND HAMPTON COUNTy CURRENT LAND USE URBAN k\Vj TRANSITION AL k ] KuRftL COUM7V CITY •— BOUND*!** 3£ miltt 1 mAt% c -85- 12:30 - 1:30 p.m. LUNCH 2:30 - 3:30 p.m. FINAL SMALL GROUP DISCUSSIONS NOTES: O -se- ai 30 - 4:30 p.m. CONCLUSION — COMMUNITY FLOOD HAZARD MANAGEMENT A CHALLENGE TO WORK TOGETHER Purpose : • To give participants an opportunity to exchange information on planned follow-up activities . • To help participants achieve a sense of what was accomplished by the program. • To relate planned follow-up activities back to goals identified early in the conference . Activity; • Series of short reports by small group leaders ; • Newsprint listing accomplishments of small groups posted around room; • Discussion of goals and accomplishments led by group facilitator. NOTES: -87- GLOSSARY ACTUARIAL RATES [1] - Insurance rates determined on the basis of a statistical calculation of the probability that a certain event will occur. Actuarial rates are also called "risk premium rates." They are established by FIA pursuant to individual community flood insurance studies and investigations that are undertaken to provide flood insurance in accordance with the National Flood Insurance Act and with accepted actuarial principles, including provisions for operating costs and allowances. AREA OF SPECIAL FLOOD HAZARD [1] - The land in the floodplain within a community subject to a 1 percent or greater chance of flooding in any given year. BARRIER ISLANDS [5] - Elongate seafront islands of sand formed by wave action. BASE FLOOD (REGULATORY FLOOD) - The selected flood frequency for regulatory purposes. The NFIP has adopted the 100-year flood as the base flood to indicate the minimum level of flooding to be used by a community in its floodplain management regulations. BERM - The horizontal portion of the backshore beach formed by sediments deposited by waves. BOG [6] - A wetland usually developing in a depression or lake with poor drainage. BOTTOMLAND HARDWOODS - Tree species that occur on water- saturated or regularly inundated soils. Classified as wetlands, these areas content both trees and woody shrubs BULKHEAD [5] - A vertical wall of wood, steel, or concrete, built parallel to the shoreline and designed to deflect waves and control erosion. CHIEF EXECUTIVE OFFICER (CEO) [1] - The official of the community who is charged with the authority to implement and administer laws, ordinances, and regulations for that community. -88- COASTAL HIGH HAZARD AREA (CHHA) [1] - "Coastal high hazard area" means the area subject to high velocity waters, including, but not limited to, hurricane wave wash or tsunamis. The area is designated on a FIRM as Zone Vl-30 COMMUNITY [1] - Any State or area or political subdivision thereof, or any Indian tribe or authorized tribal organiza- tion, which has authority to adopt and enforce floodplain management regulations for the areas within its juris- diction. EMERGENCY PROGRAM [1] - The program as implemented on an emergency basis in accordance with NFIP. It is an interim program to provide a first layer of subsidized insurance before the detailed risk studies from which actuarial rates are computed have been completed. ENCROACHMENT [4] - Any fill, structure, building, use, accessory use, or development in the floodway. ENCROACHMENT/FLOODWAY LINES [4] - The limits of obstruction to flood flows. These lines are on both sides of and generally parallel to the river or stream. The lines are established by assuming that the area landward (outside) of the lines will ultimately be developed in such a way that it will not be available to convey flood flows. EROSION [1] - The process of the gradual wearing away of land masses. ESTUARY [5] - A confined coastal water body with an open connection to the sea and a measurable quantity of salt in its waters. FIRST LAYER COVERAGE [1] - The maximum amount of structural and contents insurance coverage available under the NFIP Emergency Program. FLOOD [1] /FLOODING [1] - A general and temporary condition of partial or complete inundation of normally dry land areas from the overflow of inland and/or tidal waters, and/or unusual and rapid accumulation of runoff of surface waters from any source. -89 FLOOD CONTROL WORKS - See FLOOD PROTECTION SYSTEMS. FLOOD DISCHARGE [3] - The total quantity of water flowing in a stream and adjoining overflow areas during times of flood. It is measured by the amount of water passing a point along a stream within a specified period of time and is usually measured in cubic feet of water per second (cf s) . FLOOD FREQUENCY [3] - The frequency with which a flood of a given discharge has the probability of recurring. For example, a 100-year frequency flood refers to a flood discharge of a magnitude likely to occur on the average of once every 100 years or, more properly, has a 1 per- cent chance of being exceeded in any year. Although calculation of possible recurrence is often based upon historical records, there is no guarantee that a 100-year flood will occur at all within the 100-year period or that it will not recur several times. FLOOD HAZARD [2] - The potential for inundation and involves the risk of life, health, property, and natural flood- plain values. FLOOD HAZARD BOUNDARY MAP (FHBM) [1] - An official map of a community, issued through the NFIP, where the boundaries of the flood, mudslide (i.e., mudflow) and related erosion areas having special hazards have been designated as Zone A, M, and/or E. FLOOD HAZARD MANAGEMENT - Encompasses all local, State, and Federal activities taken before, during, and after a flood to reduce flood losses or in response to a flood disaster. FLOOD INSURANCE [1] - The insurance coverage provided under the National Flood Insurance Program. FLOOD INSURANCE STUDY (FIS) (FLOOD ELEVATION STUDY) [1] - An examination, evaluation, and determination of flood hazards and, if appropriate, corresponding water surface elevations, or an examination, evaluation, and determination of mudslide (i.e., mudflow) and/or flood-related erosion hazards. -90- FLOOD INSURANCE RATE MAP (FIRM) [1] - An official map of a community on which the FEMA has delineated both the special hazard areas and the risk premium zones applicable to the community. FLOOD PROTECTION SYSTEMS (STRUCTURAL CONTROLS) [1] - Those physical structural works for which funds have been authorized, appropriated, and expended and which have been constructed specifically to modify flooding to reduce the extent of the area within a community subject to a "special flood hazard" and the extent of the depths of associated flooding. Such a system typically includes hurricane tidal barriers, dams, reservoirs, levees, or dikes. These specialized flood modifying works are those constructed in conformance with sound engineering standards. FLOOD-RELATED EROSION [1] - The collapse or subsidence of land along the shore of a lake or other body of water as a result of undermining caused by waves or currents of water exceeding anticipated cyclical levels or suddenly caused by an unusually high water level in a natural body of water, accompanied by a severe storm, or by an unanticipated force of nature, such as a flash flood or an abnormal tidal surge, or by some similarly unusual and unforeseeable event which results in flooding. FLOODPLAIN/FLOOD-PRONE AREA - Any land area susceptible to being inundated by water from any source (see the definition of "flooding"). FLOODPLAIN MANAGEMENT [1] - The operation of an overall program of corrective and preventive measures for reducing flood damage, including but not limited to emergency preparedness plans, flood control works, and floodplain management regulations. FLOODPLAIN MANAGEMENT REGULATIONS [1] - Zoning ordinances, subdivision regulations, building codes, health regula- tions, special purpose ordinances (covering, for example, floodplains, grading, and erosion control) and other appli- cations of police power. The term describes such State or local regulations, in any combination thereof, which provide standards for the purpose of flood damage prevention and reduction. -91- FLOODPLAIN PRESERVATION [2] - The prevention of modification of the natural floodplain environment or maintenance of the floodplain environment in a condition as close as possible to its natural state using all practicable means. FLOODPLAIN RESTORATION [2] - The re-establishment of a setting or environment in which the natural functions of the floodplain can again operate. FLOODPLAIN VALUES [2] - Those natural and beneficial attri- butes associated with the relatively undisturbed state of the floodplain, including values primarily associated with water, living, and cultural resources. FLOOD PROOFING [1] - Any combination of structural and nonstructural additions, changes, or adjustments to struc- tures that reduce or eliminate flood damage to real estate or improved real property, water and sanitary facilities, structures and their contents. FLOODWAY - That portion of the floodplain consisting of the stream channel and overbank areas needed to carry and discharge flood flows. The floodway is intended to carry the deep and fast moving water. FREEBOARD - A factor of safety usually expressed in feet above a flood level for purposes of floodplain management. "Freeboard" tends to compensate for the many unknown factors that could contribute to flood heights greater than the height calculated for a selected size flood and floodway conditions, such as wave action, bridge openings, and the hydrological effect of urbanization of the watershed. GROIN - A dam for sand. A groin is a structure built at right angles to a beach to interrupt longshore sand movement and trap sand in order to stabilize or widen the beach. 100-YEAR FLOODPLAIN - The land area adjoining a river, stream, lake, or ocean which is inundated by the 100-year flood. The 100-year flood is the regulatory (base) flood under the NFIP. -92- HYDRAULICS - The science dealing with the mechanical properties of liquids which describes the specific pattern and rate of water movement in the environment. HYDROLOGY - The science of the earth's waters which describes the occurrence, circulation, distribution, chemical, and physical properties of water and its reaction with the environment. LITTORAL [5] - Of or pertaining to the shore, especially of the sea; coastal. LITTORAL DRIFT [5] - The movement of sand by littoral (long- shore) currents in a direction parallel to the beach along the shore. MARSH [6] - A wetland dominated by herbaceous or nonwoody plants, often developing in shallow ponds or depressions, river margins, tidal areas, and estuaries. MANGROVE SWAMP (STAND) [5] - An assemblage of subtropical trees of the genus Rhezaphora forming dense thickets which extend into coastal waters. NONSTRUCTURAL [2] - Any action taken to reduce or prevent flood losses in a floodplain other than the construction of storage dams, retention dams, diversions, channel improvements, and levees. All those adjustments in floodplain occupancy not specifically intended to modify flood behavior. Such adjustments include such devices as public acquisition of land, relocation of facilities, flood proofing, warning systems, and land use regulation. PRACTICABLE [2] - Capable of being done within existing con- straints. The test of what is pracicable depends upon the situation and includes consideration of the pertinent factors, such as environment, cost, or technology. PRESERVE [2] - To prevent modification to the natural floodplain environment or to maintain it as closely as possible to its natural state. -93- REGULAR PROGRAM - The program authorized by the NFIP under which risk premium rates are required for the first part of available coverage (also known as "first layer" coverage) for all new construction and substantial improvements started on or after the effective date of the FIRM, or after December 31, 1974 for FIRM'S effective on or before that data. All buildings, the construction of which started before the effective date of the FIRM, or before January 1, 1975 for FIRM'S effective before that date, are eligible for first layer coverage at either subsidized rates or risk premium rates, whichever are lower. Regardless of date of construction, risk premium rates are always required for the second layer coverage and such coverage is offered only after FEMA has completed the Flood Insurance Study for the community. REGULATORY FLOODPLAIN [3] - The area adjoining a river, stream, lake or ocean which is inundated by a regulatory flood. In riverine areas, the floodplain usually consists of a regulatory floodway and regulatory flood fringe (also referred to as a floodway fringe). In coastal areas, the floodplain may consist of a single regulatory floodplain area or a regulatory high-hazard area and a regulatory low-hazard area. REGULATORY FLOODWAY [3] - A portion of the area a selected flood would occupy consisting of a stream channel and overbank areas calculated to be capable of conveying the selected flood discharge without flood heights or velocities increasing to exceed stated levels. The regulatory floodway is not an actual channel or cement conduit (as the term "floodway" is sometimes understood by engineers). Rather, it is an area (with or without alterations by man) calculated to be of sufficient width and having sufficient flood con- veyance characteristics to pass the flood waters from upstream to downstream points without increasing flood heights more than a half foot, 1 foot, etc., or without substantially increasing velocities over what they would have been without assumed confinement. In this calculation, all areas outside of the floodway are assumed to play no role in passing flood flows, and the floodway itself is assumed to remain in an open condition. Floodway areas are subject to frequent high velocity flooding, often at considerable depths. -94- ( REGULATORY) FLOOD FRINGE (also called the floodway fringe) - The portion of the regulatory floodplain beyond the limits of the regulatory floodway. It is subject to less frequent and lower velocity flooding and does not play a major role in passing flood flows. RESTORE [2] - To re-establish a setting or environment in which the natural functions of the floodplain can again operate. REVETMENT [5] - Armors the slope face of a dune or bluff with one or more layers of rock (riprap) or concrete. RIFFLES - Stream channel bottoms are not uniform. They change in repeating patterns between shallow parts called riffles and deeper pools. RIPRAP - Rock walls. RISK PREMIUM RATES - See ACTUARIAL RATES. SEAWALL [5] - A solid barricade built at the water's edge to protect the shore and to prevent inland flooding. SECOND LAYER COVERAGE - An additional amount of insurance coverage made available when a community officially enters the Regular Program of the NFIP. SEDIMENT LOAD - The amount of suspended sediment carried by the stream. The stream's sediment load varies with water velocity and sediment size. SNAGGING - Removal of submerged or partially submerged tree stumps or branches. STILL WATER STORM HEIGHT - The projected height or elevation of flood waters generated by coastal storms of various magnitudes calculated under ideal still water conditions where no wind generated waves or storm surges are present. -95- STATE COORDINATING AGENCY [1] - The agency of a State govern- ment or other office designated by a State governor or by State statute at the request of the NFIP Administrator to assist in the implementation of the National Flood Insurance Program in that State. STRUCTURE [1] - For floodplain management purposes; a structure is a walled and roofed building, including mobile homes, and a gas or liquid storage tank that is principally above ground. "Structure" for insurance coverage purposes means a walled and roofed building, other than a gas or liquid storage tank, that is principally above ground and affixed to a permanent site, including mobile homes on foundations. For the latter purpose, the term includes buildings under construction, alteration, or repair, but does not include building materials or supplies intended for use in such construction, alteration, or repair, unless such materials or supplies are within an enclosed building on the premises. STRUCTURAL - See FLOOD CONTROL WORKS SUBSIDIZED RATES [1] - The rates established by the NFIP Administrator involving in the aggregate a subsidization by the Federal Government. SUBSTANTIAL IMPROVEMENT [1] - Any repair, reconstruction, or improvement of a structure, the cost of which equals or exceeds 50 percent of the market value of the structure either, (a) before the improvement or repair is started, or (b) if the structure has been damaged, and is being restored, before the damage occurred. For the purposes of this definition, "substantial improvement" is considered to occur when the first alteration of any wall, ceiling, floor, or other structural part of the building commences, whether or not that alteration affects the external dimen- sions of the structure. The term does not, however, include either (1) any project for improving a structure to comply with existing State or local health, sanitary, or safety code specifications that are solely necessary to assure safe living conditions or (2) any alteration of a structure listed on the National Register of Historic Places or a State Inventory of Historic Places. SWALE [5] - A low-lying area frequently moist or marshy; an intermittent drainageway; a slough. -96- SWAMPS [6] - A wetland dominated by woody plants, shrubs, and trees such as maples, gums, and Cyprus. TSUNAMI [5] - A great sea wave produced by submarine earth movement or volcanic eruption. VARIANCE [1] - A grant of relief by a community from the terms of a floodplain management regulation. WATER SURFACE ELEVATION [1] - The projected heights in relation to Mean Sea Level reached by floods of various magnitudes and frequencies in the floodplains of coastal or riverine areas. WATERSHED [4] - A region or area contributing untimately to the water supply of a particular watercourse or water body. WETLANDS [2] - Those areas that an inundated by surface or ground water with a frequency sufficient to support and, under normal circumstances, does or would support a preva- lence of vegetative or aquatic life that requires saturated or seasonally saturated soil conditions for growth and repro- duction. Wetlands generally include bottomland hardwoods, swamps, marshes, bogs, and similar areas such as sloughs, potholes, wet meadows, river overflows, mud flats, and natural ponds. -97- COMMON ABBREVIATIONS DR&R - Office of Disaster Response and Recovery of FEMA FEMA - Federal Emergency Management Agency FHBM - Flood Hazard Boundary Map FIA - Federal Insurance Administration of FEMA FIS - Flood Insurance Study FIRM - Flood Insurance Rate Map NFIP - National Flood Insurance Program REFERENCES As defined in the regulations for the National Flood Insurance Program, 41 FR 46962, 1976. A defined in the U.S. Water Resources Council guidelines for implementing Executive Order No. 11988, 43 FR 6030 (1978). From J. Kusler and T. Lee, "Regulations for Flood Plains," American Society of Planning Officials, Planning Advisory Service Report No. 277 (1972). From Wisconsin Administrative Code, Chapter NR 16 (July 1977) . From John Clark, Coastal Ecosystems Management ; A Technical Manual for the Conservation of Coastal Zone Resources (New York: John Wiley and Sons Interscience, 1977). As defined in Elinor Lander Horwitz, Our Nation's Wetlands (Washington, D.C.: Government Printing Office, 1978). I I APPENDIX I FLOOD HAZARD MANAGEMENT AND NATURAL RESOURCE PROTECTION Community Action Guide Summary ( a FLOOD HAZARD MANAGEMENT AND NATURAL RESOURCE PROTECTION Community Action Guide Summary » This training document was prepared by the Conservation Foundation under contract to the Federal Emergency Management Agency (FEMA) . Any opinions, findings, and conclusions or recommendations expressed in this document are those of the authors and do not necessarily reflect the views of the Federal Emergency Management Agency. Federal Emergency Management Agency Contract No. EMW-C-0014 • ACKNOWLEDGEMENTS Material in Chapters I through VI of this handbook has been written by Clem Rastatter, Margaret Schneider, John Clark, Jay Benforado, and Valerie Scopaz. Chapter VII was prepared by Michael Mantell. All are Conservation Foundation staff. Chapter VIII was prepared by a consultant to the Foundation, Elizabeth Haskell. Thanks go to the following reviewers who provided us their thoughtful editorial and technical comments: John Banta, Christopher Duerksen, John Kusler, Rudd Piatt, Claire Ruben, Gilbert White, Syd Howe, Larry Larsen, Ken Christopherson, Douglas Porter, Shirley Alsop, Paul Brooks, and Jerry Degan. In addition, a number of Federal Emergency Management Agency staff contributed a great deal of time in assuring the technical accuracy of this manual. These reviewers included Gary Sepulvado, Richard Krimm, Larry Zenzinger, Joseph Couglin, and John Schiebel, among others. Very special thanks and appreciation go to John H. Noble for his editorial and organizational comments; to our editor, Nancy Suniewick; and to Jenny Billet for managing and typing the manuscript. PREFACE In September 1979, The Conservation Foundation began work on a contract with the Federal Emergency Management Agency (FEMA) to develop a community training program on flood hazard mitiga- tion. * Our charge was threefold: • To enhance community understanding of the minimum standards and basic requirements of the National Flood Insurance Program (NFIP) , particularly the second phase also known as the regular NFIP program. • To help local community leaders understand the manner in which the protection of ecosystem functions may be integrated into a hazard mitigation program; • To assist leaders in communities that have entered or are about to enter the regular phase of the NFIP in providing informed leadership for implementable floodplain management programs. Under contract with FEMA, The Conservation Foundation conducted two pilot training institutes for governmental and nongovernmental leaders from flood-prone communities. Our task was to also write and produce a volume on community flood hazard management and natural resource protection, a slide show on the same subject, and a trainers' manual on how to present comparable training institutes in other communities . The material that follows is a summary of the volume on community flood hazard management and natural resource protection.** Developed for pre-institute reading, this summary is designed to serve two functions: first to ensure that participants in the training programs arrive at the training institute with a common understanding of some of the basic terms and concepts of community flood hazard management; second, to start participant examination of the manner in which they might involve others in their community in the development of a flood hazard management program. * Mitigation has been defined by the National Governors' Association as "including any activities that actually eliminate or reduce the probability of occurrence of a disaster . . . " . ** The volume itself, entitled Flood Hazard Management and Natural Resource Protection: Community Action Guide , is available from FEMA. CONTENTS PREFACE I. FLOODS: NATURAL EVENTS WITH MAN-MADE REPERCUSSIONS II. COASTAL AND RIVERINE FLOODPLAIN MANAGEMENT: GUIDELINES FOR CONSERVATION OF RESOURCES AND PROTECTION AGAINST FLOOD HAZARDS . . . III. CREATING A COMMUNITY PROGRAM TO MANAGE FLOOD HAZARDS IV. THE NATIONAL FLOOD INSURANCE PROGRAM . . . VI. PUBLIC INVOLVEMENT IN COMMUNITY FLOOD HAZARD MANAGEMENT , VII. THE LEGAL CONSIDERATIONS IN SELECTING COMMUNITY STRATEGIES FOR FLOOD HAZARD MITIGATIONS , Page 8 12 V. NEW INITIATIVES FOR THE FEDERAL EMERGENCY MANAGEMENT AGENCY 23 28 33 VIII. INSTITUTIONAL CONSIDERATIONS IN IMPLEMENTING COMMUNITY STRATEGIES FOR FLOOD HAZARD MITIGATION 37 APPENDIX A: GLOSSARY 41 APPENDIX B: PUBLIC PARTICIPATION TOOLS 55 I. FLOODS: NATURAL EVENTS WITH MAN-MADE REPERCUSSIONS THE NATURE OF FLOODING AND FLOODPLAINS FLOODS, FLOODING, AND FLOODPLAINS Floods, the temporary inundation of normally dry land, are the result of a complex set of hydrologic* and hydraulic* interactions. In a riverine system, flooding occurs when conditions cause a stream channel to be filled with a greater volume of water than it can carry. The excess water rises up and flows over the channel banks onto the adjacent land. In a coastal system, flooding occurs when storm-driven waves rise above the mean high tide level and surge inland to inundate adjacent low-lying lands. Delineating these flood-prone lands and estimating the probability and frequency of inundation is an art which draws on both hydrologic and hydraulic principles (see Chapter IV) . BENEFITS OF FLOODS AND FLOODPLAINS Although the inundation of land areas may be hazardous to man, flooding has many beneficial components. Floods play a vital role in the development and maintenance of floodplains and their associated wildlife habitats. Generally, floods are an important source of nutrients and energy for floodplain's habitats. Flood waters are also responsible for the rich, flat alluvial soils that are so valuable for agricultural purposes. Floodplains provide easy access to the water for economic and recreational purposes and serve to lessen the potential destruct iveness of floods. Floodplains contribute to the: # Moderation of flood levels; * Hydrology , the science of the earth's waters, describes the occurrence, circulation, distribution, chemical, and physical properties of water and its reaction with the environment. Meteorologic conditions, soil type, vegetative cover, and land use, which can affect the quantity and distribution of water, are hydrologic factors. Hydraulics , the science dealing with the mechanical properties of liquids describes the specific pattern and rate of water movement in the environment. Stream channel shape and roughness which affect the pattern and rate of water movement are hydraulic factors. -2- • Retention and storage of flood waters; • Maintenance of water quality; and • Protection against erosion. THE NATURE OF FLOOD HAZARDS AND FLOOD DAMAGE Despite the beneficial aspects of floods and floodplains, with few exceptions floods have been viewed as destructive events, threats to human life and property and to a community's economic vitality. A frequent response to the flood threat was to fight the river or hold back the sea by building levees, flood walls, dikes, and breakwaters. Experience has shown these responses to have only temporary and partial effect. We are beginning to realize that human uses of the floodplain adversely affect the flooding potential of a riverine or coastal water system. THE MAGNITUDE OF THE FLOOD HAZARD PROBLEM Riverine and coastal floodplains constitute only about 7 percent of the total land area of the U.S., yet flooding is the most widespread geophysical hazard. The federal government recognizes over 20,000 communities as being floodprone. ^— Estimates are that approximately one-half of U.S. communities suffer significant flooding from riverine and stream overflows alone. Floodplains are estimated to contain 6.4 million dwelling units and considerable non-residential development. Flood losses have increased steadily since the 1930s. In 1966, a federal task force on flood control policy estimated annual losses at $1 billion. The Water Resources Council's latest estimate placed annual losses at approximately $3.8 billion in 1979 dollars. If present trends continue, WRC projects 1985 annual flood losses (in 1979 dollars) of $5 billion. These ever-increasing flood-related damage estimates have spurred a re-evaluation of traditional flood management approaches in this country. THE MANAGEMENT OF FLOODS IN THE UNITED STATES HISTORICAL RESPONSES TO FLOOD HAZARDS (PRE-1968) The history of flood and flood hazard management is one of increasing governmental involvement. During the late eighteenth century and early nineteenth century, flooding was viewed as a regional or local problem. Consequently, attempts to deal with the problem were usually local in nature and scale. The period from 1824 to 1936 saw an -3- increasing amount of Federal activity dealing with flood protection on navigable rivers. The passage of the Flood Control Act of 1936 marked the beginnings of a comprehensive Federal policy toward flood prevention and control on a national scale. Initially, this policy advocated the use of both structural projects and nonstructural land management measures. In time, however, the structural approach became the preferred federal means of flood control. This structural dominance continued even as a number of flood hazard management experts began to voice — in the early 1950' s— -their belief that structural measures, alone, were not capable of mitigating the flood hazard. THE NATIONAL FLOOD INSURANCE PROGRAM: THE TRANSITIONS YEARS (1968-1978) In 1968, Congress created the National Flood Insurance Program (NFIP) . The two major thrusts of the 1968 Act (as amended) were (and are): • To make Federal flood insurance available to home- owners and business-owners already exposed to flood hazards; and • To require as a condition of insurance availability adoption of specified hazard mitigation practices, including land use practices which restrict develop- ment on delineated flood-prone lands. The Federal Insurance Administration, which was created by the act to administer the NFIP and is now part of the Federal Emergency Management Agency (FEMA), was charged with identifying all flood-prone areas of the United States and establishing actuarial insurance rates based on the degree of flood hazard risk. LEGISLATIVE INITIATIVES FOR FLOOD HAZARD MITIGATION In the early 1970's, in recognition of the seriousness of rising disaster relief expenditures, both Congress and the President took initiatives designed to give new momentum to disaster mitigation and non-structural flood control strategies . Water Resources Development Act of 1974 (P.L. 93-251) Section 73 of the Water Resources Development Act requires that Federal agencies give consideration to non- structural alternatives in the planning or design of any federal project. Federal agencies are authorized to assume -4- at least 80 percent of the cost for these non-structural alternative including acquisition of floodplain lands for recreational, fish and wildlife, and other public purposes. The Disaster Relief Act of 1974 (P.L. 93-28) The Disaster Relief Act of 1974 established policies for the distribution of financial assistance during presiden- tially declared disasters. EXECUTIVE BRANCH INITIATIVES FOR FLOOD HAZARD MITIGATION Floodplains and Wetlands Executive Orders On May 24, 1977, President Carter issued Executive Order 11988, Floodplain Management, and Executive Order 11990, Protection of Wetlands. The Floodplains Order directs all federal agencies to provide leadership to reduce the risk of flood loss, minimize the impact of floods, and "restore and preserve the natural and beneficial values served by floodplains in carrying out its activities ..." Each agency was instructed to avoid siting on a floodplain unless there was no reasonable alternative site. Where an action must take place in a flood- plain, an agency must evaluate the potential effects of that action and take steps to minimize the activity's impacts on the floodplain. The Wetlands Executive Order also stresses avoidance, consideration of alternatives, and minimization of damage to valuable natural systems (wetlands). Both orders are important to local communities; their implementation by federal agencies will affect the full range of Federal investment in local communities . The Federal Emergency Management Agency The most recent stage of increasing involvement of the Federal government in flood hazard management was the creation in 1979 of the Federal Emergency Management Agency (FEMA). Coordinating the hazard mitigation efforts of five related agencies, FEMA is now responsible for Federal planning coordination and oversight of emergency preparedness, response, and mitigation of natural and man-made disasters. Together these Federal initiatives provide national recognition of the ever-increasing level of flood-related losses in this country and the need for a comprehensive, coordinated approach to flood hazard mitigation. These federal policies influence actions on the floodplains and must be taken into consideration in a community's flood hazard mitigation deci sions . -5- II. COASTAL AND RIVERINE FLOODPLAIN MANAGEMENT: GUIDELINES FOR CONSERVATION OF RESOURCES AND PROTECTION AGAINST FLOOD HAZARDS In both the riverine and coastal setting, ecological resources play an important role in flood hazard protection by buffering storms and moderating flood heights and velocities. Protecting these resources is frequently an effective flood hazard management strategy and should be a component of any community flood hazard management program. Guidelines for resource protection recommended in Chapter 2 are based on the "design with nature" principle: planning for both hazards and resource management should start with an understanding of the forces of nature. While the specific application of this principle will vary from community to community — reflecting unique physical and ecological settings — five guiding management policies should apply in all flood- prone areas: manage the entire system; preserve the natural floodplain; protect the edge; preserve watercourses and wet- lands; and restore damaged floodplain environments. PART I: RIVERS Running through the landscape as a corridor, rivers and the lands they drain form an important ecological manage- ment unit. An effective program of river flood hazard and ecological management should consider the river and its watershed as a system. Activities in every part of the river corridor--not just in its floodprone parts — affect river flood potentials and ecological functions and should be wisely managed. River corridors extend from the stream's headwaters to the sea and across valleys from ridge line to ridge line of the drainage basin. Across the valley, the corridor can be divided into three places of concern — the river, floodprone lands, and the uplands . Within these places are natural resources that are of particular concern for their ecological and flood moderating values. These vital resources — wetlands and transitional features — require special management and protection. To protect the natural flood-moderating and ecological values of the river corridor system, the following guidelines are recommended : • Discourage alteration of the watershed terrain; • Discourage stream channelization, straightening, diking, bulkheading , and riprapping in favor of nonstructural alternatives; -6- Restrain activities such as excavation, fillinq, 4 clearing, paving, grading, draining, or diking that alter the surface or hydrologic systems of wetlands ; Require structures and access ways to be designed so that they do not degrade wetland function; Require protective buffer strips along wetlands edges ; Require that all development be set back an appropriate distance from the "ordinary high water mark" of all streams; Require appropriate development standards wherever it is not feasible to include all transitional features and other vital resources in a protective buffer; and Restore natural river corridor values. PART II: COASTS Coastal management for the dual purposes of providing protection from flood hazards and conserving ecological resources should embrace the entire coastline and the watershed and inland hydrologic systems that it drains. Of greatest importance is the place where water and land interact—the coastal floodplain. Activities in every part of the watershed can affect coastal flooding, however, and should be included in a community's management program. Like the river corridor, the coastal area can be divided into places of concern — the coastal basin, coastal floodprone lands, and upland areas. Within these zones are found a variety of vital resources, requiring special management considerations. The vital resources include barrier islands, beaches, dunes, wetlands, and special vegetative edge features . The management policies applicable to coastal watersheds and hydrologic systems are also similar to those for riverine watersheds. Above all, alterations of the natural features of coastal areas should be discouraged. The other guidelines that follow, suggested in part I, are applicable to coastal watersheds: • Discourage alteration .of the watershed terrain; • Discourage alteration of natural drainageways such as streams; -7- • Restrain activities that alter the surface or hydrologic systems of wetlands; • Require structures and access ways across wetlands to be designed so that they do not degrade wetland functions; and • Require protective buffer strips along wetlands and other vital resource edges. The following additional guidelines are suggested to protect other vital coastal resources: • Select locations for navigation channels and for removal and deposit of the dredged material to avoid adverse effects on basin floors and critical areas such as grass beds. • Avoid removing sand from all parts of the beach system, including the shallow near shore zone; • Maintain natural beach processes by di scourging strucutres that adversely affect littoral (or ocean) sand transport; • Prevent disturbance of dunes and dune vegetation by requiring building to be landward of the active dune; by restraining traffic over dunelands; and by prohibiting excavation and removal on dunes; • Locate all structures inland of the beach; • Discourage activities that physically alter the face or toe of banks and bluffs; • Encourage the use of natural means of protection or property designed bulkheads to protect bank and bluff toes from erosion; and • Encourage restoration of degraded vital resource areas such as wetlands, dunes, and beaches. -8- III. CREATING A COMMUNITY PROGRAM TO MANAGE FLOOD HAZARDS * Each community bears the principal responsibility for addressing flood hazards within its borders. Each needs to fashion its own flood hazard management program. No single model exists for a community flood hazard management program. The management program in a community should be tailored to the community's unique physical and institutional setting and should respond to the community's goals. But the over- riding objective should be reducing flood losses and protecting natural systems, as discussed in the previous chapter, while avoiding unacceptable economic, social, and environmental costs . Fashioning a community flood hazard management program is a complex process. To help communities about to undertake the process, two innovative flood hazard management programs are described in part I of this chapter. Part II then suggests a series of key questions communities should address in structuring their individual flood hazard management programs. PART I . TWO INNOVATIVE FLOOD HAZARD MANAGEMENT PROGRAMS The examples, Baltimore County and Charles River Watershed, are neither typical of community flood hazard management programs, nor are they model programs: communities vary too much to propose a "right" management program. The two examples do represent ambitious responses to local and regional flooding problems that illustrate the possibilities for mitigating flooding. These examples also demonstrate key elements of the community planning process and thus provide useful background for communities entering that process. In Baltimore County, a program of acquisition and relocation of flood-prone homes, combined with regulation of the 100-year floodplain and stormwater management policies, has been under- taken without outside funding. Along the Charles River in Massachusetts, a flood hazard management project combines natural systems preservation with structural flood control to achieve the multiple goals of flood control, habitat protection, and the provision of recreation and open space areas. PART II: FLOOD HAZARD MANAGEMENT ISSUES Like those leaders in Baltimore County and along the Charles River, community planners fashioning flood hazard management programs face a series of issues. -9- WHAT FLOOD HAZARDS DOES THE COMMUNITY FACE? As discussed in chapter I, floods are natural events that, in interaction with man, can pose hazards to both life and property. The nature of a community's flooding problem, therefore, is dependent on both natural processes and on man-made factors . To identify and understand their flooding problems, community planners need a variety of data. In most communities, a variety of flood data exists, ranging from historical accounts to detailed hydraulic studies. Technical and financial assist- ance, provided by State and Federal agencies, can help communities evaluate and supplement these data. The major source of technical assistance for the community will often come through the National Flood Insurance Program. In addition to flood data, a community needs to assemble information on the population and property at risk. Zoning, documents, master plans and tax maps are helpful in identifying the type and condition of existing or committed land uses in the hazard areas. Within the classes of existing uses, developed land, as well as preserved or regulated areas, should be identified. WHAT ARE THE COMMUNITY'S GOALS FOR FLOOD HAZARD MANAGEMENT? Before community leaders can put together a wise flood hazard management program, they must first decide what they want to accomplish — what their goals are. A recent survey of communities participating in the National Flood Insurance Program indicates that most communities have adopted multiple goals for their flood hazard management programs. The goals most frequently adopted in surveyed communities were reduction of losses and protection of health and safety. Over 40 percent of the surveyed communities participating in the regular phase of the NFIP also cited preservation of natural areas and open space as community goals. Another goal communities may wish to consider adopting is "divert development away from floodplain locations where practical." Adoption of a development diversion goal can help make community goals consistent with federal programs. Goals for any community based effort, of course, cannot be set in a vacuum or by only one group of interests. Many people and organizations have a stake in the goals established for floodprone lands, including: financial leaders; environmental conservation leaders; emergency preparedness civic organizations; and general pupose civic organizations. -10- HOW DO EXISTING PROGRAMS AND REGULATIONS RESPOND TO THE .<* FLOOD HAZARD IN THE COMMUNITY? In choosing strategies to achieve flood hazard management goals, community planners need to consider existing programs and regulations. An inventory of these programs and regulations, therefore, should be undertaken. Such an inventory would likely include review of existing zoning, subdivision, and building codes as well as review of State enabling legislation. WHAT STRATEGIES AND TOOLS ARE AVAILABLE TO ADDRESS FLOOD HAZARDS? There are three basic approaches to flood hazard manage- ment: (1) modify the flood itself, (2) modify man's suscepti- bility to flood damage; and (3) modify the impacts by distributing the losses (i.e., through insurance and disaster relief). Reducing man's susceptibility to flooding involves adjusting building practices and land uses in hazard areas, and protecting natural systems that moderate flooding. For puposes here, the strategies to accomplish these objectives can be divided into five groups: planning; regulation; acquisition/redevelopment; public information/education; and economics. < WHAT FLOOD HAZARD MITIGATION STRATEGIES ARE MOST APPROPRIATE FOR THE COMMUNITY? Using all the information gathered on the flooding problem and on available management strategies, community planners are in a position to select specific measures to meet flood hazard management goals. In choosing among flood hazard management alternatives, community planners will need to consider social, economic, and environmental impacts of the alternative. Some impacts, of course, are beneficial. The most common benefits derived from flood hazard management programs are reduction in flood losses, improved safety, increased recreational opportunities, and protection of natural systems. Other impacts can be detrimental. Frequently cited "costs" of flood hazard manage- ment include reductions in some property values, rsulting in reductions in assessed valuations, and increased costs of construction in hazard areas. Though evaluating the costs and advantages of flood modera- tion approaches appears to be a formidable job, this type of evaluation is no different from that involved in any other community decision. Careful evaluation of the flood problem the community setting, and alternative management strategies within a broad community forum should result in the "airing" 4 -11- of critical trade-offs and enable the community to choose a course of action compatible with its flood problem and broader community needs. The ultimate success of any community flood hazard manage- ment program is dependent on this broad-based community support and on the effectiveness of the institutions assigned enforce- ment responsibilities. * • -12- IV. THE NATIONAL FLOOD INSURANCE PROGRAM WHAT IS THE NFIP ? The NFIP provides basic flood hazard data and a flood hazard management framework for every flood-prone community in the United States. The NFIP program offers insurance coverage and other benefits to local communities if they undertake certain flood hazard mitigation steps. INSURANCE Flood insurance becomes available to the community whenever an application to participate in the National Flood Insurance Program is made to FEMA. Insurance coverage is made available in two stages. Before completion of mapping showing the risk zones on which actuarial rates can be based, a first layer of coverage at subsidized rates is available. This period, from the start of community participation in the NFIP to the completion of the detailed mapping study (the Flood Insurance Study) is the Emergency Program. When detailed flood hazard risk studies are completed, and communities agree to undertake additional hazard mitigation responsibilities, a second layer of additional coverage becomes available at actuarial rates. This phase of the communities' participation in the NFIP is the Regular Program. New Directions in Insurance; Coastal With the issuance of the FEMA wide rule to implement the floodplains and wetlands Executive orders, new policies have been set in place that will affect flood insurance rates in the future. Beginning February 1, 1981, newly constructed or substan- tially improved structures in coastal high hazard areas (V zones)* will be individually rated to withstand damage from the base flood. (The base flood is the 100 year frequency storm for most activities, and the 500 year frequency storm for critical activit- ies — activities for which any risk of flooding is too great). * The Federal Insurance Administration must identify all coastal high hazard areas by October 1, 1981. . \ -13- Flood related factors that must be considered in individual insurance ratings include flood risk, flood related erosion risk, soil composition, stability of structure. In addition, the base flood elevation will be the designated wave height. In the past, actuarial rates in V-zones have been based solely on the relationship of the first-floor elevation of the structure to the base-flood elevation. The base-flood elevation in coastal areas has been the still-water surge of the storm having a 1 percent chance of occurrence in any given year and has not included wave height and runup. In addition, actuarial rates have before been unrelated to other factors that affect the actual flood risk exposure of a building in an exposed coastal location — i.e., flood related erosion, etc. Now wave height and other factors that relate to risk exposure will be used to determine the actuarial rate for each structure.* FLOOD HAZARD MITIGATION ** The flood mitigation measures required of communities participating in NFIP are also staged, depending upon the amount of flood information provided to the community. Required flood hazard mitigation activities during the Emergency Program relate to the issuance of building permits and certain development activities, such as subdivisions. In the absence of engineering data, the community must develop a process for case-by-case consideration of developments in known flood-prone areas. In addition, the community is urged to gather the best available data on flood boundaries and elevations . * Although the legal definition of new buildings is tied to the date a community enters the NFIP Regular Program (and adoption of the Flood Insurance Rate Map), when there is a change in the FIRM and a change in the base-flood elevation, structures built before that change are subjected to the rates in effect when they were first eligible for insurance. ** Defined as action taken to minimize flood damage potential -14- During the community's participation in the Regular Program, floodplain management requirements which are tied to the amount of information provided by FIA, cover land use in high hazard areas where new development should be restricted. These specific areas are identifed on maps given to the community by FIA. Information on these same maps usually establishes the heights to which structures have to be elevated and/or f loodproofed. WHO ARE THE ACTORS IN NFIP AND WHAT ARE THEIR ROLES? THE COMMUNITY Responsibility for implementing the NFIP rests with the community. As defined by NFIP regulations, a community is any political subdivision or area of a State with authority to adopt and enforce floodplain management regulations for the areas within its jurisdiction. The word "community" as used in the NFIP program can refer to a State, to a county, to a municipality, or to any other political subdivision with authority to implement the NFIP requirements. The role of specific actors within communities is described in chapter IV. STATE GOVERNMENT The State has several roles in implementing the National Flood Insurance Program. State properties and- buildings are eligible for flood insurance if they meet certain NFIP standards. State government also plays a key enabling role in the area of floodplain management. Many activities that local governments are required to carry out as conditions for their participation in the NFIP must first be allowed by State law (see chapter VII, Legal Considerations). State agencies can also require more restrictive regulations than those required by the NFIP. FEDERAL GOVERNMENT The NFIP is implemented through the Federal Insurance Administration , which is a component of the Federal Emergency Management Agency (FEMA).* FEMA has both national staff (located in Washington) and regional staff working in each of the 10 Federal * Until the creation of FEMA in 1979, the Federal Insurance Administration (FIA) was a component of the Department of Housing and Urban Development (HUD) . With the reorganization of disaster related programs into FEMA, FIA became a division of FEMA. All NFIP rules and regulations have been recodified as FEMA regulations. (44 CFR, Chapter I, Subchapter B) A Federal Insurance Administrator, retains primary responsibility for the program's implementation at the national level. -15- regions (figure I). At the regional level the FEMA staff responsi- ble for the implementation of the NFIP are found within the Office of Insurance and Mitigation. Both the regional and national staff include engineers, planners, and hydrologists ; all play critical roles in implementing the NFIP at the community level. Other Federal agencies are also involved in floodplain management and implementing the NFIP at the community level. The U.S. Army Corps of Engineers, the Soil Conservation Service and the Tennessee Valley Authority are three other principal Federal agencies that have technical assistance programs for floodplain management (see appendix A, chapter III). In addition, these and several other agencies contract with FEMA to conduct some of the basic engineering studies that bring communities into the NFIP's Regular Program. PRIVATE ORGANIZATIONS Private organizations are involved both formally and informally in implementing the NFIP nationally. Engineering firms frequently are awarded contracts to prepare the flood insurance studies that enable communities to participate in the NFIP Regular Program. Other organizations provide technical services under contract to FEMA. Private consulting firms conduct technical studies that often precede changes in regulatory direction. Businesses and environmental organizations monitor policy shifts that affect the implementation of the NFIP. HOW DOES A COMMUNITY PARTICIPATE IN THE NFIP ? IDENTIFICATION AND APPLICATION For most communities in the United States, involvement with the NFIP began in the early to mid 1970's. First, these communities were identified by the Federal Insurance Administration as flood prone (i.e., having areas subject to at least a 1 percent annual chance of flooding. After a nonparticipating community has been identified as floodprone, or wishes to become eligible for flood insurance coverage, community officials apply to FEMA for admission to the Emergency Program. If the nonparticipating community has been given a flood hazard boundary map, it has 12 months to join the Emergency phase of the NFIP and adopt the required floodplain management regulations. The steps for community involvement in the NFIP are summarized in Table I. -16- Fiqure I Regional Offices X i F fancttce I J*, O » * W^ MtMM ^ Sw "*>/ 1. OAft 1 i vr iO ** ^ I -o \ Kmui City ^ 1 1 ° KL<> Tank ^ . C»'*-« r\ >4 'it Botox ^ S Nrm tar* PhiiadFlphi 0»ni» IV An»mj VI VMCfN >U iHDl r • i r. * J -17- TABLE I Steps for Community Involvement in the NFIP FIA Identification of Community as Flood Prone FIA Preparation of FHBM Community Application to Program Community Preparation of Map and other Application Materials Community Passage of Appropriate Ordinances and Regulatory Authority Community Enrolled in Emergency Program Review by State and FIA Regional Office Community Identified for Accelerated Conversion Conversion Community Emergence on Priority List CCO Appointed , FIS Begun Review by State and FIA Regional Office Time and Cost Meeting Intermediate Meeting Final Meeting, Presentation of FIS Publication of Proposed Flood Elevations and Insurance Zones Aooeals Period - 90 days Publish final flood elevations Effective date of FIRM Map (within six months of final publication of flood elevations) Community Passage of Floodplain Management Ordinances (within 6 months of publication of final elevations) Community Enters Regular Program 18- WHAT ARE THE BASIC REGULATORY CONCEPTS AND TOOLS OF COMMUNITY PARTICIPATION IN THE NFIP ? THE BASE FLOOD CONCEPT To predict flood damage, it is necessary to determine the area of land affected and the height to which water will rise (flood elevation) in that area. Floods are normally described in terms of their frequency (or more accurately, their probability of occurring. FIA has selected the 100-year flood (with a 1 percent chance of occurrence annually) as the base flood for the NFIP. 100-Year Flood The 100-year base flood in a riverine setting is normally determined on an engineering model that uses information on historic floods, climatological patterns, and current hydro- logic and hydraulic watershed data. In a coastal setting, the 100-year base flood calculation also involves use of historic records — ocean gauges and climatological data — but instead of the runoff information developed from the hydrologic calculations of a riverine situation, the area covered by a coastal flood is generally related to the storm coming in from the ocean. (The cause of coastal flooding is generally wind-driven water. ) The geographic area inundated by the 100-year flood in coastal situations is calculated in an engineering model that estimates where the still-water storm surge (usual height of astronomic tide plus surge) will cover the land. Floodplain; Regulated Land Areas For regulatory purposes, the floodplain is divided into parts or districts — each of which has a different set of regulatory requirements. Floodway The floodway was designed to reserve a portion of the flood- plain for the primary purpose of conveying flood flows, and any development which would impede this flow was prohibited in this district. In a riverine setting, the floodway is defined as the channel of a river (or other watercourse) and the adjacent land area that must be kept open (unconfirmed either horizontally or vertically) to provide for the discharge of the base flood without cumulatively increasing the water surface elevation. Regulatory floodways typically allow rises in flood elevations of anything from zero to two feet. The NFIP, as noted, has adopted a one-foot-rise floodway. -19- Coastal High Hazard Areas Coastal high hazard areas — those parts of the coastal floodplain subject to wave action — are identifed on flood insurance rate maps (FIRM's) as the velocity or V-zones since they are the areas most vulnerable to the force of coastal storms An area is designated a V-zone where the still-water storm height (tide plus surge) is sufficient to support at least a 3-foot wave, assuming, of course, that the distance along the water is great enough for waves to gain such height. It's important to note that elevations used in the velocity zone in Atlantic and Gulf Coast communities have thus far been still-water storm heights and historically have not included wave height. Flood Fringe The so-called flood fringe is that part of the floodplain between the coastal high hazard area or the floodway and the boundary of the 100-year flood. The amount of land in the flood fringe varies according to the topography of the community. If the community has adopted a zero-rise floodway for its floodway district, the flood fringe may be extremely narrow or nonexistent, Regulated Development All development that takes place in the 100-year floodplain in coastal and riverine areas must be evaluated for its impact on flood levels and designed to standards for elevation, flood proofing, and/or anchorage that protect against flood damage. WHAT ARE THE WORKING TOOLS OF THE NFIP ? FIA makes available a number of floodplain management tools free of charge to flood prone communities. These tools provide the basic data base or starting point for the minimum regulatory program requried by the NFIP and for many other floodplain management activities communities may wish to undertake . FLOOD HAZARD BOUNDARY MAP (FHBM) The flood hazard boundary map is often provided to a community when it enters the Emergency Program or shortly thereafter. It outlines the special flood hazard area (the 100-year floodplain) . It is prepared quickly from existing data and contains no flood elevation information. ■20- FLOOD INSURANCE STUDY (FIS) The flood insurance study is the detailed engineering study of flood hazards conducted by a qualified firm or government agency with the input of the community during a series of meetings. Its purpose is to identify and evaluate flood hazards and corresponding water surface elevations. Flood Profiles Flood profiles are contained in the flood insurance study. The flood profiles for riverine floods typically show the cross section elevation of the stream bed and the 10-year, 50-year, 100-year, and 500-year flood at specific intervals along the stream. Flood Boundary and Floodway Map The flood boundary and floodway map is a major floodplain management tool in riverine communities. It identifies the boundaries of the floodway and of the 100- and 500-year flood. This map may also contain ground elevation information at a few places, as well as the cross section location of flood elevation (profile) information from the flood insurance study. Flood Insurance Rate Map (FIRM) Flood insurance rate maps divide the flood hazard area into risk zones from which actuarial rate are established. MAP LOCATOR SYSTEM The FIA is planning to institute over several year a map location service. Lending institutions, insurance agents, and real estate brokers will be able to call a central toll- free number to determine the degree of flood hazard of a particular property or structure. WHAT ARE THE COMMUNITY REQUIREMENTS OF THE NFIP ? Community involvement in the NFIP can be viewed as a con- tinuum in which, as new data are acquired, new requirements are imposed. Community participation and requirements begin as a community is identified as flood-prone and enters the Emergency Program. Table II provides a summary of NFIP program requirements. -21- ■* * H 0) rH X! 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NEW INITIATIVES FOR THE FEDERAL EMERGENCY MANAGEMENT AGENCY National policies now being implemented by FEMA promise to influence, in important ways, the activities of flood- prone communities. Two shifts in FEMA policy are particularly important. They are: FEMA's response to the floodplains and wetlands Executive orders; and new initiatives by FEMA to take advantage of post-disaster opportunities for hazard mitigation. FEMA ORGANIZATIONS: DRR AND FIA One major purpose of creating the Federal Emergency Manage- ment Agency was to coordinate and centralize federal efforts to encourage long-term disaster mitigation. FEMA brought under its umbrella two previously separate agencies with closely related disaster mitigation missions: the Federal Disaster Assistance Administration (now FEMA's Office of Disaster Response and Recovery — DRR) , and the Federal Insurance Admini- stration (utilizing the same title within FEMA). As suggested by Table I, both DRR and FIA are responsible for a variety of actions that directly and indirectly affect the manner in which individual communities address flood hazard problems. FEMA AND THE FLOODPLAINS AND WETLANDS EXECUTIVE ORDERS On September 9, 1980, FEMA issued final regulations in response to the Floodplains (11988) and Wetlands (11990) Executive orders. These regulations are applicable to all of FEMA's actions, the interim rule will eventually affect the full range of activities before, during and after a flood disaster which are conducted by DRR and FIA. The new regula- tions apply to activities in flood hazard areas. In addition, actions outside a floodplain or wetland, but which affect those areas, are also covered. The Eight-Step Process The interim rule establishes an eight-step decision-making process modeled on Water Resources Council guidelines, for evaluating activities on the floodplain. The eight steps are as follows: Step 1 - Determine if action is located in a wetland and/or the 100-year (or, if appropriate, due to the nature of the action, 500-year) floodplain. Step 2 - Early public notification and involvement in the decision. Step 3 - Identification of practicable alternatives. -25- Step 4 - Identification of the full range of direct and indirect impacts that would result from the action. Step 5 - Identification of measures to minimize adverse impacts and to restore, preserve, and enhance the natural beneficial values of floodplains and wetlands . Step 6 - Reevaluate the proposed action in light of its impact and determine it it is truly the only practicable location. Step 7 - Publicly explain for any final decision why the floodplain or wetland is the only practicable alternative. Step 8 - Monitor implementation of any floodplain or wetland action to ensure that minimization requirements are fully implemented. Standards to Minimize Flood Damage In addition to this eight-step process, the FEMA rule prescribes substantive standards for the minimization of flood damage. These minimization standards are slightly different for the different kinds of hazard mitigation activities con- ducted by DRR and FIA. They are mutually supportive and together will form a strong framework for flood hazard mitigation, particularly in the highest hazard areas--the riverine floodway and the coastal high hazard area. NEW INITIATIVES IN THE POST-DISASTER SETTING Immediately following a major flood, thousands--sometimes millions--of federal dollars flow into a community to assist recovery. In the past, this recovery has focused on rebuilding the community in the same place and frequently in the same manner as before the flood. Many people concerned with flood hazard mitigation are now looking at the post-flood situation as an opportunity to reduce susceptibility to future flood hazards. One of the major purposes for the creation of FEMA was to encourage hazard mitigation in disaster situations. A common leadership directed toward hazard mitigation should ensure a profitable marriage between the flood hazard management expertise of FIA and the disaster response expertise of the Office of Disaster Response and Recovery. On July 10, 1980, the Director of the Office of Management and Budget (OMB) in the Executive Office of the President, signed a directive on Flood Disaster Recovery. This directive provided for FEMA leadership in an interagency task force aimed at pro- moting the use of common flood disaster planning and post-flood recovery practices by all Federal and state agencies operating -26- into an interagency agreement providing for interagency, inter- disciplinary, and intergovernmental hazard mitigation teams to operate in post-disaster situations. DISASTER RELIEF AND FLOOD HAZARD MITIGATION: SECTION 406 Communities receive federal assistance for pre-disaster contingency planning through the National Flood Insurance Program. In addition, FEMA has major responsibilities in the disaster situations. As discussed in Chapter I, Section 406* of the Disaster Relief Act of 1974 specified that disaster loans and grants be conditioned to ensure that (1) building repairs are in accordance with acceptable safety standards, and (2) actions are taken to reduce future susceptibility to natural hazards, "including safe land use and construction practices . . . " . Many of the substantive requirements for the implementation of Section 406 will flow from FEMA's implementation of the floodplains Executive order. HAZARD MITIGATION OPPORTUNITIES FEMA staff identify two major mitigation opportunities in post-disaster situations: flood protection of damaged structures and relocation of substantially or repetitively damaged structures. FEDERAL INSURANCE ADMINISTRATION: RELOCATION STRATEGIES During the past few years, FEMA has developed its own strategies to support the relocation of certain flood damaged properties out of the floodplain, and to acquire certain properties in flood risk areas so that these properties may be maintained in open space usage. The two strategies described below are: • An insurance payment strategy (called Constructive Total Loss) that allows the owner of a severely damaged property to be paid an insurance payment as if the property has been totally destroyed. Thus made economicaly whole, the owner of a severely damaged structure may be able to move his/ or herself out of the flood risk area. The single largest source of federal disaster assistance is funded under the Act, now implemented by FEMA. -27- ^u) • • A comprehensive strategy purchase for the purpose of maintenance of open space uses certain severely and repetitively damaged properties (with authority derived from Section 1362 of PL 90-448 as amended). The long-term recovery of the area will often be dependent upon actions taken during the immediate post-disaster period to minimize the community's exposure to future flood hazards. Specialists in natural disaster recovery planning identify four overlapping periods in the recovery process. It is useful to examine these periods in terms of their hazard mitigation opportunities . 1) Emergency period -- search and rescue activities take place, emergency feeding and medical attention, housing and debris removal. 2) Restoration period — restoration of public utilities, housing, and commercial and industrial structures. Damage Survey Reports are conducted. 3) Reconstruction I -- rebuilding capital stock to pre-disaster levels. 4) Reconstruction II — activity focuses on commemorative activities, betterment, and development. The challenge of the post-disaster recovery period is to develop mechanisms that allow the decision maker to take a broad view of the emergency situation and avoid making decisions that lock the community into a set of actions that ensure repetition of the disaster. The key to many communities* ability to make appropriate post-disaster mitigation decisions may well lie in effective contingency planning before the disaster. -28- VI. PUBLIC INVOLVEMENT IN COMMUNITY FLOOD HAZARD MANAGEMENT Citizen participation is an essential element of democratic government. Citizens' involvement can contribute significantly to the improvement of government decision-making. This reason alone has resulted in the increase over the last decade in Federal compliance requirements for substantial citizen participation in the development and/or management of a variety of programs, including flood hazard mitigation. Such legal requirements aside, public involvement in planning a community flood hazard management program can be highly productive. INCORPORATING PUBLIC VALUES TO MAKE BETTER PLANS A community's residents often have a more intimate under- standing of particular community problems than the technical experts or consultants working on a project. Citizens know a community's goals and can best determine how a flood hazard management program should mesh with these and give them new definition. Since they will be the ones to experience the impact of any adopted program, they are in the best position to decide the future of their community. Citizens' input, thus, will assure that any plan developed will be better than one one involving taxpayers. GAINING VOTER SUPPORT AND RESOLVING CONTROVERSIES In many communities, voter approval will be needed to adopt and implement a flood hazard management program. Controversial issues are bound to arise during the development of a community flood hazard management program. It is far better to debate publicly these issues early in the planning process, rather than later, so that reasonable compromises can be worked out. Voters who have taken part in planning and who feel they have had a chance to influence decision making will most likely support the program and encourage their friends, neighbors, and community organizations to do the same. This caring can translate into assistance from citizens in monitoring the implementation of the program, as well as support for hard political decisions made during the course of implementation. The real payoff of governmental/civic leader partnership may come in the form of other long-term community benefits that go beyond flood hazard mitigation. Citizens who participate in planning a project will develop a sense of continuing responsibility for it. They will expend the extra effort to secure added benefits — recreation, natural resource conservation, and so on--that make the difference between an ordinary flood control program and an outstanding one. -29- CAMPAIGNING FOR CITIZEN PARTICIPATION An effective citizen participation program requires major commitments from local officials and agency staff members and from civic-minded citizens. It is likely to cost both private time and public money. Citizen involvement might initially mean delays in implementing the local flood hazard management program. In the long run though, public involvement should contribute to a better program— more reflective of community needs and goals and, what is most important, more likely to be supported by the voters and taxpayers. When designing a civic leader public participation component of a community flood hazard management program, several key issues must be addressed: PURPOSE, ROLES, AND RESPONSIBILITIES Both the purpose of public participation program and the roles and responsibilities of the participating public leaders and local governmental officials must be determined and be stated clearly at the start of planning to avoid misunderstandings and even anger later. LEGAL CONSIDERATIONS Several legal considerations must be accounted for in the development of a public involvement program. These include : o The regulations and guidance issued by Flood Insurance Administration to implement the National Flood Insurance Program which included several requirements for public notification and community coordination/consultation during production of the Flood Insurance Study. o The requirements of the floodplains Executive order (11988) which applies to all Federal agencies that either directly or indirectly influence action that might affect floodplains. Public involvement is a key provision in the eight-step decision-making process required under the order's implementation guidelines . TARGETED INTERESTS One of the more difficult questions local officials face when developing a public participation program is "Who are the public to be involved?" This question leads to several additional questions: Is the public those "interested" citizens -30- who are already involved in local decision-making processes or those who have an economic stake in a final decision? Are these citizens truly representative of the broader public interest? If not, how can others be identified who could or should be involved? The final flood hazard management program selected is likely to affect a significantly or be of interest to a number of different interest groups within a community. Civic and government actors designing a public participation program should keep the various interest groups in mind. These interests include: economic interest such as insurance agents and mortgage lenders; environmental/conservation groups; floodplain residents; members of local service organizations such as the Red Cross; and the general taxpayers. ISSUES FOR PUBLIC INVOLVEMENT Determining just what issues and questions the public can help resolve in the course of the public participation program requires attention to two important matters: Officials designing a public involvement component of a flood hazard control program should take care that the citizens who eventually volunteer their time and energy to find acceptable flood control solutions are not overworked. Having become sensitized to matters of timing, scheduling, and other constraints of budget and training, officials must then determine at what points the public should be involved. At each step in the community decision-making process, a number of opportunities occur for involving the public in decision making. Public involvement is an essential element: in goal setting; at several points in the data gathering process; during identification of alternative flood mitigation strategies; in the selection of a program; and during the selection and assignment of institutions to implement the flood control program. STAFF AND MATERIAL RESOURCES FOR PUBLIC INVOLVEMENT? Just as public participation program designers need to be aware of the scheduling and budgetary restraints in relation to volunteers, so do they need to consider staff resources and funds and the availability of resource help, materials, and facilities in developing a public involvement component. To some extent, these factors will determine the scope of the public participation effort. However, although it is important to be realistic about what is possible, program developers should not hold back from undertaking a suitable program because -31- of seemingly limited human and financial resources. What may seem like a sizable short-term investment could have long-term benefits that far outweigh the initial time and commitment costs . THE PUBLIC PARTICIPATION TOOLS Public participation can be achieved in a wide range of activities designed to inform and involve the public. Most of the mechanisms of public participation fit into one of three categories, as shown in table VI-1. Each of these tools is described in detail in Appendix B of this Summary Guide. Table VI-I * Mechanisms of Public Participation in Flood Hazard Control Education/ Information Newspaper Articles Radio and TV programs Speeches and Presentations Field Trips Exhibits School Programs Fi 1ms Brochures Newsletters Reports Letters Conferences Review/Reaction Public Hearings Survey Questionnaires Public Inquiries Public Meetings Interaction/ Dialogue Workshops Special Taks Forces Interviews Advisory Boards Informal Contacts Study Group Di scussions Seminars Katharine P. Warner, "Public Participation in Water Resources Planning," University of Michigan, Ann Arbor, 1971 -32- POSSIBLE OBSTACLES The development of a working public involvement program in a community may well require perserverance on the part of informed community leaders. Citizens will want to work closely with the local officials and with the planning staff to ensure that public involvement programs: closely track the decision- making process; identify important community issues; and target the important affected and interested public in a community. While different projects and activities generate different levels of interest in the community in many cases, a community leader will be able to encourage public involvement by pointing out to various groups how their interests coincide with or are affected by the flood hazard management planning process. REWARDS OF PARTICIPATION Public involvement in the flood hazard management planning process does bring rewards. The ultimate purpose of public involvement in flood hazard management planning is mitigation of current and future community flood hazards at a lower environmental, economic, and social cost. -33- VII. THE LEGAL CONSIDERATIONS IN SELECTING COMMUNITY STRATEGIES FOR FLOOD HAZARD MITIGATION Local governments have significant powers to mitigate flood hazards. Power to regulate, tax, and acquire property enable a community to select confidently among the array of available strategies. These strategies, however, are not without limits and some will be more effective than others in both hazard mitigation and courtroom challenges. LEGAL RESPONSIBILITIES — WHAT ARE COMMUNITIES REQUIRED TO DO? Community responsibility to mitigate flood hazards generally originates from three different sources. Various Federal statutes and their implementing regulations require community flood actions. Some of these Federal laws deal directly with the problems of flood hazard mitigation, while others have an indirect impact in addressing closely related subjects. Through programs, regulations, statutes, and constitutional provisions, some State governments also require communities to act. Recent judicial developments that may hold local governments financially responsible for certain types of flood damages is the third source of community responsibility. The need to avoid costly suits and damages requires that localities take appropriate flood hazard mitigation actions. Potential Local Government Liability Requires Flood Hazard Mitigation Local governments are increasingly being held financially responsible for damages suffered by individuals in a range of areas including fire protection, earthquakes, and to a limited extent, flooding. Very few decisions exist thus far, but there are indications that localities may one day find themselves liable when they have not acted reasonably in mitigating foreseeable flood hazards. Potential Liability Inadequate Local Government Action Local governments may be held liable for taking inadequate or negligent action with regard to flood hazards. Local Government Inaction Courts have generally not ruled on cases where there has been no action by a locality to mitigate flood hazards. Courts are typically reluctant to judge government responses that may be based on political considerations or trade-offs rather than on a knowing or negligent disregard for flood hazards. -34- Nonetheless , a local government might be held responsible to citizens for damages caused primarily by its failure to exercise reasonable care in anticipating a flood. Such an outcome might occur especially when State or Federal flood programs are offered and not complied with, and a history of flooding exists. A Lack of Enforcement A locality may also be liable for flood damages when it has established a flood program but fails to enforce it. Responsibility to Adjacent Localities With the emerging trend of regional responsibility, a local government could be liable for flood damages it causes to an upstream, downstream, or crossstream locality. Elements of a Liability Suit Generally, in suits for flood damages against localities, the party bringing the suit must show that the losses suffered were caused by the government's act or failure to act. Proving that the government's conduct caused the damages may be extremely difficult since so many other factors could have intervened to produce the flood damages. Nevertheless, once causation is demonstrated, courts will probably examine the "reasonableness" of the government's behavior. Reasonableness will be determined from surrounding circumstances, including an inquiry as to whether the flood and damages could have been anticipated (f oreseeability ) , whether it was an ordinary or extraordinary flood, and the relative costs and benefits of government action versus inaction. Ways to Avoid Liability Several steps can be taken by a locality to significantly lessen the likelihood of being held liable for flood damages. 1. COMPLY WITH FEDERAL AND STATE FLOOD HAZARD PROGRAMS. 2. STATE CLEARLY THE FINDINGS, REASONS, AND BASIS FOR ACTION ON A REVIEWABLE RECORD. 3. BE FAMILIAR WITH APPLICABLE PRINCIPLES OF LIABILITY. 4. INSPECT AND DISCOVER HAZARDOUS CONDITIONS ON THE GOVERNMENT'S OWN PROPERTY. 5. USE A WARNING OR DISCLAIMER OF LIABILITY. -35- LEGAL AUTHORITY — WHAT DO COMMUNITIES HAVE THE POWER TO DO? The powers come from a variety of sources and four are particularly important in flood mitigation: 1. Regulatory powers are the most widely used and consist primarily of zoning, subdivision regulations, building code provisions, and disclosure laws. 2. Taxing powers provide for the use of such strategies involving tax incentives and disincentives and special floodplain assessments. 3. Spending powers enable expenditures for flood hazard mitigation purposes, including structural improvements, land acquisition, and regulatory enforcement among other strategies. Communities may be defeating the effect of strategies intended to restrict floodplain encroachment, however, by providing services and facilities to those areas. By putting sewers and building roads, localities may encourage development and use of that area. Thus, the more significant aspect of the spending power for flood mitigation may be the power not to spend. 4. Acquisition powers provide communities with the ability to purchase or comdemn complete parcels of land, arrange for easements or limited rights to land, and guarantee necessary access during a disaster for such things as mitigation efforts and relief. LIMITATIONS — WHAT CONSTRAINTS EXIST ON THE EXERCISE OF COMMUNITY POWERS? Community powers are largely determined by constitutional doctrines, their sources, and judicial interpretations of each. The constitutional limitations and other special problems that may constrain various flood mitigation powers include: Due Process Due process is a constitutional guarantee which generally requires that a community exercise its powers in a reasonable manner. In more specific terms, due process requires the govern- ment action to be within the limits of its powers and for proper objectives. Additionally, the means used must be related to accomplishing the objective and in a manner which is not arbitrary, -36- The Taking of Property | ( Floodplain regulations generally limit land uses and con- struction. When the floodplain landowner's use of land is restricted by such regulations, has the government "taken" the land — that is, unconstitutionally burdened that property without paying compensation? If a court finds that a "taking" has occurred, it will generally invalidate the regulations as to the particular piece of property involved in the suit. Since the facts of each case largely determine the court's ruling, it is imperative that all facts supporting that community's action be brought forth to justify it. Equal Protection Equal protection in the floodplain context requires that a government have a valid reason for treating similarly situated lands differently. Parcels of land similar in elevation and distance from the stream cannot be regulated differently unless a rational reason exists. FACTORS TO STRENGTHEN POWERS Several methods exist for a community to avoid limitations on its power to mitigate floods and, in fact, increase its powers while possibly improving flood mitigation efforts. The concepts underlying these methods will not ensure judicial acceptance in every case, because not all community's have the same powers, nor do all courts interpret them in the same manner. In general, however, the following methods have enabled communities to exercise their powers in a number of different courts and contexts relating to floodplains. 1. COMMUNITY ACTIONS THAT ARE PART OF A LOCAL, REGIONAL, STATE, OR FEDERAL PROGRAM ARE STRONGER. 2. SOME COURTS GIVE INCREASED WEIGHT TO LAND USE REGULATIONS THAT CONCERN THE PROTECTION OF ENVIRONMENTALLY SIGNIFICANT AREAS AND VALUES. 3. A CLEAR AND DETAILED STATEMENT OF PURPOSES AND FACTS WILL STRENGTHEN THE PRESUMPTION IN FAVOR OF THE COMMUNITY ACTION AND ENABLE A COURT TO UNDERSTAND AND UPHOLD IT BETTER. 4. CAREFUL AND THOROUGH DRAFTING TO PERMIT AS MUCH DEVELOP- MENT AS IS POSSIBLE, CONSISTENT WITH THE PURPOSE OF FLOOD HAZARD MITIGATION, WILL LESSEN THE LIKELIHOOD OF A SUCCESSFUL CHALLENGE. **) » -37- VIII. INSTITUTIONAL CONSIDERATIONS IN IMPLEMENTING COMMUNITY STRATEGIES FOR FLOOD HAZARD MITIGATION WHO ARE THE GOVERNMENT ACTORS AND WHAT DO THEY DO? In a typical community today, a wide array of government officials at various levels and in various agencies perform flood hazard mitigation tasks and related assignments: • Local governments exercise most land use planning and control , including floodplain regulation, setting basic land use patterns in an interaction with private market forces. Most floodplain regulatory strategies will need to rely on this existing network to a great degree. • Regional planning agencies , such a metropolitan planning commissions and councils of governments, conduct regional comprehensive and special purpose planning and coordina- tion, but have few, if any, implementation powers and do not regulate development. • State governments are increasingly involved in floodplain management. Typically, States will adopt floodplain standards or guidelines to be implemented at the local level. • Federal agencies perform diverse functions that both directly and indirectly influence floodplain land uses . HOW TO DESIGN AN INSTITUTIONAL STRUCTURE FOR NEW FLOOD MANAGEMENT TASKS A major aim of a floodplain management strategy is to assign to appropriate agencies the tasks that they can best perform and then provide some means to coordinate actions among them. Who performs flood management tasks is often as important as what functions are authorized, because the imple- mentation can make or break the best floodplain management strategy. An awareness of implementation realities needs to be built into a proper strategy from its inception. In assigning new flood management tasks to governmental institutions, five questions need to be answered: 1. By what criteria should a governmental system be judged in light of floodplain management needs? 2. What levels of government are best qualified to assume new tasks? 3. Within any one local government, what agencies should be assigned flood management tasks? -38- 4. What should be the roles of elected officials, part-time citizen boards, and full-time public employees? 5. How can various agencies and governments that impact a single watershed be coordinated? CRITERIA FOR ASSIGNING FLOOD MANAGEMENT FUNCTIONS The great diversity of local, regional, and state govern- ments in the United States precludes the existence of any single answer to the questions posed above. Rather than describing one institutional model to accommodate every circumstance, five goals, or normative criteria, are suggested here that can be used to judge a governmental structure. Ideally, governmental institutions, taken as a whole, should be: (a) Administratively efficient; (b) Politically acceptable; (c) Economically effective; (d) Politically accountable; and (e) Equitable. WHAT LOCAL GOVERNMENT ENTITIES ARE BEST QUALIFIED TO ASSUME NEW TASKS ? Each level of government has its own strengths and limita- tions. A coordinated local/regional/.State/Federal flood manage- ment strategy will seek to take advantage of the abilities of each level of government and minimize the limitations. THE ROLE OF POLITICS, PERSONALITIES, AND PROFESSIONS IN ASSIGNING FLOOD MANAGEMENT TASKS The impact of structure and governmental form on floodplain programs can be significant. However, in assigning regulatory and other powers to various government agencies, structure may not be as important as the politics of the regulatory agency and the personalities and professions of the staff. These considerations are particularly important in deciding which agencies should regulate floodplain actions after the levels of government are selected. -39- WHAT SHOULD BE THE ROLES OF ELECTED OFFICIALS, CITIZEN BOARDS, AND PUBLIC EMPLOYEES? State and local governments use a variety of citizen boards and commissions to administer zoning and other land use controls and to direct special districts and soil conservation districts. Some boards are elected, other appointed by the governor, the city or county council, or the mayor. These State and local citizen bodies can be particularly useful in generating political support and voter acceptance for regulatory programs and in expanding citizen participation in decision making. However, citizens who serve part-time and who are usually unpaid are less effective in making decisions that require considerable technical expertise or investment of time, such as issuing permits, conducting surveillance, or bringing enforcement actions. For these reasons, boards composed of appointed or elected members should adopt goals and policies, while the day-to-day implementation of those policies should be left to professional technical staffs. HOW CAN THE AGENCIES AND GOVERNMENTS THAT IMPACT A SINGLE WATERSHED BE COORDINATED? Intergovernmental cooperation among municipal, county, regional, State, and Federal interests is a key to any effective strategy. Overcoming the vertical, functional, and horizontal fragmentation that characterizes government functioning vis-a-vis flood control is no easy task, since it is deeply rooted in governmental structures, laws, traditions, and political differences. Intralocal or Functional Coordination Within each local government where several agencies perform flood management tasks, a floodplain coordinator or lead agency is needed to coordinate these various tasks. The local govern- ing body should designate one full-time official who is responsible and accountable for coordinating floodplain management programs, within his or her own government, ties to higher levels of government, and progress toward goals. Intergovernmental or Vertical Coordination Links should be provided between the community and State and Federal agencies. This connection might be provided by direct and frequent contact between the local coordinator and the State coordinating agency designated by the governor. ■40- Interlocal or Horizontal Coordination The most important type of collaboration in implementing a flood control program is among regulating local governments that share the same watershed. The range of techniques to secure area-wide approaches include: assigning regional council of local elected officials coordination review powers over major permits or construction activities; developing joint service agreements or joint regulations; authorizing local or interlocal special districts to undertake flood management tasks; transfering functions from municipalities to higher levels of government--the county or the State; joint acquisi- tion programs; granting extraterritorial powers, by which local governmental floodplain regulatory powers extend over ad jointing unincorporated land; and sharing of planning and engineering staffs. -41- I > APPENDIX A GLOSSARY » <^ -4 3- APPENDIX A • GLOSSARY ACTUARIAL RATES [1] - Insurance rates determined on the basis of a statistical calculation of the probability that a certain event will occur. Actuarial rates are also called "risk premium rates." They are established by FIA pursuant to individual community flood insurance studies and investigations that are undertaken to provide flood insurance in accordance with the National Flood Insurance Act and with accepted actuarial principles, including provisions for operating costs and allowances. AREA OF SPECIAL FLOOD HAZARD [1] - The land in the floodplain within a community subject to a 1 percent or greater chance of flooding in any given year. BARRIER ISLANDS [5] - Elongate seafront islands of sand formed by wave action. BASE FLOOD (REGULATORY FLOOD) - The selected flood frequency for regulatory purposes. The NFIP has adopted the 100-year flood as the base flood to indicate the minimum level of flooding to be used by a community in its floodplain management regulations. BERM - The horizontal portion of the backshore beach formed by sediments deposited by waves. BOG [6] - A wetland usually developing in a depression or lake with poor drainage. BOTTOMLAND HARDWOODS - Tree species that occur on water- saturated or regularly inundated soils. Classified as wetlands, these areas content both trees and woody shrubs BULKHEAD [5] - A vertical wall of wood, steel, or concrete, built parallel to the shoreline and designed to deflect waves and control erosion. CHIEF EXECUTIVE OFFICER (CEO) [1] - The official of the community who is charged with the authority to implement and administer laws, ordinances, and regulations for that community. -44- COASTAL HIGH HAZARD AREA (CHHA) [1] - "Coastal high hazard area" means the area subject to high velocity waters, including, but not limited to, hurricane wave wash or tsunamis. The area is designated on a FIRM as Zone Vl-30. COMMUNITY [1] - Any State or area or political subdivision thereof, or any Indian tribe or authorized tribal organiza- tion, which has authority to adopt and enforce floodplain management regulations for the areas within its juris- diction. EMERGENCY PROGRAM [1] - The program as implemented on an emergency basis in accordance with NFIP. It is an interim program to provide a first layer of subsidized insurance before the detailed risk studies from which actuarial rates are computed have been completed. ENCROACHMENT [4] - Any fill, structure, building, use, accessory use, or development in the floodway. ENCROACHMENT/FLOODWAY LINES [4] - The limits of obstruction to flood flows. These lines are on both sides of and generally parallel to the river or stream. The lines are established by assuming that the area landward (outside) of the lines will ultimately be developed in such a way that it will not be available to convey flood flows. EROSION [1] - The process of the gradual wearing away of land masses. ESTUARY [5] - A confined coastal water body with an open connection to the sea and a measurable quantity of salt in its waters. FIRST LAYER COVERAGE [1] - The maximum amount of structural and contents insurance coverage available under the NFIP Emergency Program. FLOOD [1] /FLOODING [1] - A general and temporary condition of partial or complete inundation of normally dry land areas from the overflow of inland and/or tidal waters, and/or unusual and rapid accumulation of runoff of surface waters from any source. -45- FLOOD CONTROL WORKS - See FLOOD PROTECTION SYSTEMS. FLOOD DISCHARGE [3] - The total quantity of water flowing in a stream and adjoining overflow areas during times of flood. it is measured by the amount of water passing a point along a stream within a specified period of time and is usually measured in cubic feet of water per second (cf s) . FLOOD FREQUENCY [3] - The frequency with which a flood of a given discharge has the probability of recurring. For example, a 100-year frequency flood refers to a flood discharge of a magnitude likely to occur on the average of once every 100 years or, more properly, has a 1 per- cent chance of being exceeded in any year. Although calculation of possible recurrence is often based upon historical records, there is no guarantee that a 100-year flood will occur at all within the 100-year period or that it will not recur several times. FLOOD HAZARD [2] - The potential for inundation and involves the risk of life, health, property, and natural flood- plain values. FLOOD HAZARD BOUNDARY MAP (FHBM) [1] - An official map of a community, issued through the NFIP, where the boundaries of the flood, mudslide (i.e., mudflow) and related erosion areas having special hazards have been designated as Zone A, M, and/or E. FLOOD HAZARD MANAGEMENT - Encompasses all local, State, and Federal activities taken before, during, and after a flood to reduce flood losses or in response to a flood disaster. FLOOD INSURANCE [1] - The insurance coverage provided under the National Flood Insurance Program. FLOOD INSURANCE STUDY (FIS) (FLOOD ELEVATION STUDY) [1] - An examination, evaluation, and determination of flood hazards and, if appropriate, corresponding water surface elevations, or an examination, evaluation, and determination of mudslide (i.e., mudflow) and/or flood-related erosion hazards. -46- FLOOD INSURANCE RATE MAP (FIRM) [1] - An official map of a community on which the FEMA has delineated both the special hazard areas and the risk premium zones applicable to the community. FLOOD PROTECTION SYSTEMS (STRUCTURAL CONTROLS) [1] - Those physical structural works for which funds have been authorized, appropriated, and expended and which have been constructed specifically to modify flooding to reduce the extent of the area within a community subject to a "special flood hazard" and the extent of the depths of associated flooding. Such a system typically includes hurricane tidal barriers, dams, reservoirs, levees, or dikes. These specialized flood modifying works are those constructed in conformance with sound engineering standards. FLOOD-RELATED EROSION [1] - The collapse or subsidence of land along the shore of a lake or other body of water as a result of undermining caused by waves or currents of water exceeding anticipated cyclical levels or suddenly caused by an unusually high water level in a natural body of water, accompanied by a severe storm, or by an unanticipated force of nature, such as a flash flood or an abnormal tidal surge, or by some similarly unusual and unforeseeable event which results in flooding. FLOODPLAIN/FLOOD-PRONE AREA - Any land area susceptible to being inundated by water from any source (see the definition of "flooding"). FLOODPLAIN MANAGEMENT [1] - The operation of an overall program of corrective and preventive measures for reducing flood damage, including but not limited to emergency preparedness plans, flood control works, and floodplain management regulations. FLOODPLAIN MANAGEMENT REGULATIONS [1] - Zoning ordinances, subdivision regulations, building codes, health regula- tions, special purpose ordinances (covering, for example, floodplains, grading, and erosion control) and other appli- cations of police power. The term describes such State or local regulations, in any combination thereof, which provide standards for the purpose of flood damage prevention and reduction. ft -47- FLOODPLAIN PRESERVATION [2] - The prevention of modification of the natural floodplain environment or maintenance of the floodplain environment in a condition as close as possible to its natural state using all practicable means. FLOODPLAIN RESTORATION [2] - The re-establishment of a setting or environment in which the natural functions of the floodplain can again operate. FLOODPLAIN VALUES [2] - Those natural and beneficial attri- butes associated with the relatively undisturbed state of the floodplain, including values primarily associated with water, living, and cultural resources. FLOOD PROOFING [1] - Any combination of structural and nonstructural additions, changes, or adjustments to struc- tures that reduce or eliminate flood damage to real estate or improved real property, water and sanitary facilities, structures and their contents. FLOODWAY - That portion of the floodplain consisting of the stream channel and overbank areas needed to carry and discharge flood flows. The floodway is intended to carry the deep and fast moving water. FREEBOARD - A factor of safety usually expressed in feet above a flood level for purposes of floodplain management. "Freeboard" tends to compensate for the many unknown factors that could contribute to flood heights greater than the height calculated for a selected size flood and floodway conditions, such as wave action, bridge openings, and the hydrological effect of urbanization of the watershed. GROIN - A dam for sand. A groin is a structure built at right angles to a beach to interrupt longshore sand movement and trap sand in order to stabilize or widen the beach. 100-YEAR FLOODPLAIN - The land area adjoining a river, stream, lake, or ocean which is inundated by the 100-year flood. The 100-year flood is the regulatory (base) flood under the NFIP. -48- HYDRAULICS - The science dealing with the mechanical properties of liquids which describes the specific pattern and rate of water movement in the environment. HYDROLOGY - The science of the earth's waters which describes the occurrence, circulation, distribution, chemical, and physical properties of water and its reaction with the environment. LITTORAL [5] - Of or pertaining to the shore, especially of the sea; coastal. LITTORAL DRIFT [5] - The movement of sand by littoral (long- shore) currents in a direction parallel to the beach along the shore. MARSH [6] - A wetland dominated by herbaceous or nonwoody plants, often developing in shallow ponds or depressions, river margins, tidal areas, and estuaries. MANGROVE SWAMP (STAND) [5] - An assemblage of subtropical trees of the genus Rhezaphora forming dense thickets which extend into coastal waters. NONSTRUCTURAL [2] - Any action taken to reduce or prevent flood losses in a floodplain other than the construction of storage dams, retention dams, diversions, channel improvements, and levees. All those adjustments in floodplain occupancy not specifically intended to modify flood behavior. Such adjustments include such devices as public acquisition of land, relocation of facilities, flood proofing, warning systems, and land use regulation. PRACTICABLE [2] - Capable of being done within existing con- straints. The test of what is pracicable depends upon the situation and includes consideration of the pertinent factors, such as environment, cost, or technology. PRESERVE [2] - To prevent modification to the natural floodplain environment or to maintain it as closely as possible to its natural state. -49- REGULAR PROGRAM - The program authorized by the NFIP under which risk premium rates are required for the first part of available coverage (also known as "first layer" coverage) for all new construction and substantial improvements started on or after the effective date of the FIRM, or after December 31, 1974 for FIRM'S effective on or before that data. All buildings, the construction of which started before the effective date of the FIRM, or before January 1, 1975 for FIRM'S effective before that date, are eligible for first layer coverage at either subsidized rates or risk premium rates, whichever are lower. Regardless of date of construction, risk premium rates are always required for the second layer coverage and such coverage is offered only after FEMA has completed the Flood Insurance Study for the community. REGULATORY FLOODPLAIN [3] - The area adjoining a river, stream, lake or ocean which is inundated by a regulatory flood. In riverine areas, the floodplain usually consists of a regulatory floodway and regulatory flood fringe (also referred to as a floodway fringe). In coastal areas, the floodplain may consist of a single regulatory floodplain area or a regulatory high-hazard area and a regulatory low-hazard area. REGULATORY FLOODWAY [3] - A portion of the area a selected flood would occupy consisting of a stream channel and overbank areas calculated to be capable of conveying the selected flood discharge without flood heights or velocities increasing to exceed stated levels. The regulatory floodway is not an actual channel or cement conduit (as the term "floodway" is sometimes understood by engineers). Rather, it is an area (with or without alterations by man) calculated to be of sufficient width and having sufficient flood con- veyance characteristics to pass the flood waters from upstream to downstream points without increasing flood heights more than a half foot, 1 foot, etc., or without substantially increasing velocities over what they would have been without assumed confinement. In this calculation, all areas outside of the floodway are assumed to play no role in passing flood flows, and the floodway itself is assumed to remain in an open condition. Floodway areas are subject to frequent high velocity flooding, often at considerable depths. -50- (REGULATORY) FLOOD FRINGE (also called the floodway fringe) - The portion of the regulatory floodplain beyond the limits of the regulatory floodway. It is subject to less frequent and lower velocity flooding and does not play a major role in passing flood flows. RESTORE [2] - To re-establish a setting or environment in which the natural functions of the floodplain can again operate. REVETMENT [5] - Armors the slope face of a dune or bluff with one or more layers of rock (riprap) or concrete. RIFFLES - Stream channel bottoms are not uniform. They change in repeating patterns between shallow parts called riffles and deeper pools. RIPRAP - Rock walls. RISK PREMIUM RATES - See ACTUARIAL RATES. SEAWALL [5] - A solid barricade built at the water's edge to protect the shore and to prevent inland flooding. SECOND LAYER COVERAGE - An additional amount of insurance coverage made available when a community officially enters the Regular Program of the NFIP. SEDIMENT LOAD - The amount of suspended sediment carried by the stream. The stream's sediment load varies with water velocity and sediment size. SNAGGING - Removal of submerged or partially submerged tree stumps or branches. STILL WATER STORM HEIGHT - The projected height or elevation of flood waters generated by coastal storms of various magnitudes calculated under ideal still water conditions where no wind generated waves or storm surges are present. ■51- STATE COORDINATING AGENCY [1] - The agency of a State govern- ment or other office designated by a State governor or by State statute at the request of the NFIP Administrator to assist in the implementation of the National Flood Insurance Program in that State. STRUCTURE [1] - For floodplain management purposes; a structure is a walled and roofed building, including mobile homes, and a gas or liquid storage tank that is principally above ground. "Structure" for insurance coverage purposes means a walled and roofed building, other than a gas or liquid storage tank, that is principally above ground and affixed to a permanent site, including mobile homes on foundations. For the latter purpose, the term includes buildings under construction, alteration, or repair, but does not include building materials or supplies intended for use in such construction, alteration, or repair, unless such materials or supplies are within an enclosed building on the premises. STRUCTURAL - See FLOOD CONTROL WORKS SUBSIDIZED RATES [1] - The rates established by the NFIP Administrator involving in the aggregate a subsidization by the Federal Government. SUBSTANTIAL IMPROVEMENT [1] - Any repair, reconstruction, or improvement of a structure, the cost of which equals or exceeds 50 percent of the market value of the structure either, (a) before the improvement or repair is started, or (b) if the structure has been damaged, and is being restored, before the damage occurred. For the purposes of this definition, "substantial improvement" is considered to occur when the first alteration of any wall, ceiling, floor, or other structural part of the building commences, whether or not that alteration affects the external dimen- sions of the structure. The term does not, however, include either (1) any project for improving a structure to comply with existing State or local health, sanitary, or safety code specifications that are solely necessary to assure safe living conditions or (2) any alteration of a structure listed on the National Register of Historic Places or a State Inventory of Historic Places. SWALE [5] - A low-lying area frequently moist or marshy; an intermittent drainageway; a slough. -52- SWAMPS [6] - A wetland dominated by woody plants, shrubs, and trees such as maples, gums, and Cyprus. TSUNAMI [5] - A great sea wave produced by submarine earth movement or volcanic eruption. VARIANCE [1] - A grant of relief by a community from the terms of a floodplain management regulation. WATER SURFACE ELEVATION [1] - The projected heights in relation to Mean Sea Level reached by floods of various magnitudes and frequencies in the floodplains of coastal or riverine areas. WATERSHED [4] - A region or area contributing untimately to the water supply of a particular watercourse or water body. WETLANDS [2] - Those areas that an inundated by surface or ground water with a frequency sufficient to support and, under normal circumstances, does or would support a preva- lence of vegetative or aquatic life that requires saturated or seasonally saturated soil conditions for growth and repro- duction. Wetlands generally include bottomland hardwoods, swamps, marshes, bogs, and similar areas such as sloughs, potholes, wet meadows, river overflows, mud flats, and natural ponds. -53- COMMON ABBREVIATIONS DR&R - Office of Disaster Response and Recovery of FEMA FEMA - Federal Emergency Management Agency FHBM - Flood Hazard Boundary Map FIA - Federal Insurance Administration of FEMA FIS - Flood Insurance Study FIRM - Flood Insurance Rate Map NFIP - National Flood Insurance Program REFERENCES 1. As defined in the regulations for the National Flood Insurance Program, 41 FR 46962, 1976. 2. A defined in the U.S. Water Resources Council guidelines for implementing Executive Order No. 11988, 43 FR 6030 (1978) . 3. From J. Kusler and T. Lee, "Regulations for Flood Plains," American Society of Planning Officials, Planning Advisory Service Report No. 277 (1972). 4. From Wisconsin Administrative Code, Chapter NR 16 (July 1977) . 5. From John Clark, Coastal Ecosystems Management ; A Technical Manual for the Conservation of Coastal Zone Resources (New York: John Wiley and Sons Interscience, 1977) . 6. As defined in Elinor Lander Horwitz, Our Nation's Wetlands (Washington, D.C. : Government Printing Office, 1978). -55- "* APPENDIX B PUBLIC PARTICIPATION TOOLS 3 • -57- APPENDIX B : , PUBLIC PARTICIPATION TOOLS Education/ Information Newspaper Articles Radio and TV Programs Speeches and Pre s en ta tons Field Trips Exhibits School Programs Films Brochures Newsletters Reports Letters Conferences Review/ React ion Public Hearings Survey Questionnaires Public Inquiries Public Meetings Interaction/ Dialogue Workshops Special Task Forces Interviews Advisory Boards Informal Contacts Study Group Discussions Seminars EDUCATION/ INFORMATION MECHANISMS The educational tools designed to promote the quality of public understanding of issues must deal with the informational needs of both the most and the least sophisticated interest groups in your community. These tools will be used to: • familiarize the public with the nature of the flooding problem being addressed in the design of a flood hazard management program; • apprise the public of key issues that may be of community concern ; • Apprise the public of opportunities for input into key issues; and • provide detailed information in lay language on the tech- nical and political aspects of flood hazard management. The use of informational tools will be essential to the con- duct of any public participation program — whether conducted by a local government entity or by a citizen organization. These infor- mational mechanisms cannot be the end of the public participation program, however. Meaningful public involvement will require the use of reactive and interactive mechanisms as well. MAILING LISTS The development of a comprehensive mailing list of all organizations and individuals likely to be interested in or affected by a flood hazard management program should be one of the first steps in a public participation program. The list -58- should include public officials, business and civic groups, public interest and environmental organizations, and represen- tatives from outside the planning area such as upstream and downstream residents who may have an interest in the program. The list should be supplemented throughout the planning process as more people become aware of the program, attend meetings, and ask for information. The mailing list will be useful for distributing newsletters, fact sheets and other information mate- rials and meeting and hearing announcements, and for conducting surveys or widespread public consultation activities. Citizen groups should be involved in developing such a mailing list, both for themselves and for the use of governmental agencies with pubic participation responsibility. NEWS MEDIA Newspapers, local magazines, and radio and television sta- tions reach the general public and help to stimulate interest in the program. They should be kept informed of all items of general interest. Key issues should be clarified and made interesting to news editors and environmental reporters through news briefings and special media events, such as a visit to a flood hazard area (particularly if there is evidence of damage) . Except when used to support in-depth feature stories, the background material prepared for news items should be brief and non-technical. When technical or complicated information is to be included in an interview or media event, it should always be concisely stated in a fact sheet and included with a brochure and/or background materials in a press kit. Press kits should be prepared for all events that you hope will be covered by the media. In order to use the media effectively you should consider undertaking the following activities, early in the program development process. • Visit media offices at the beginning of the process. -- identify key personnel responsible for covering stories that might be related to the program. — learn media requirements for stories — deadlines, filming requirements, requirements for public announcements . • Hold background briefing for media personnel identified. Learn from media personnnel what kinds of issues are likely to receive media attention. • Develop a media plan which will anticipate media coverage for various aspects and stages of the planning process. The plan should include: .9 3 ♦ -59- news releases about specific aspects of the planning process, such as hearings, appointment of advisory groups, and workshops. In order to ensure arrival at the appropriate desk, these should always be hand delivered. public service announcements (PSA's) for radio and television stations to publicize meetings and hearings or to call attention to some aspect of the plan, such as selection of alternatives. Radio stations will usually prepare PSA's from written copy sent to them. Television stations may request someone to appear in the PSA, or they h.ay want to film on location. It is always best to handle these arrange- ments in person. participation in radio and television talk shows . Make sure the individuals who appear are able to respond to a wide range of questions in an infor- mative and congenial manner. PUBLICATIONS Publications may consist of such things as published versions of draft components of the proposed management pro- gram, draft and final Environmental Impact Statements, (if applicable) or of a variety of short brochures, flyers, fact sheets or bulletins designed to facilitate public input to the Flood Hazard Management Plan. These publications may be stored in depositories, handed out at meetings, enclosed with mailings, and supplied to the media. • Flyers : A flyer should be very brief — one or two pages, perhaps include a picture or two. It might explain the purpose of the management program and give the name, address, and phone number of the public official in charge of the planning. • Brochures ; A brochure is a brief booklet which may, for example, describe the need for the program, refer to federal and state laws and regulations, detail various steps in the planning process, and provide background information for new advisory committee members, govern- ment officials, newsmen, and other interested persons. A summary of the draft management plan might be distri- buted as a brochure, prior to any final pubic meeting. • Fact Sheets ; Probably one of the most useful publica- tions will be the fact sheets, each on a single issue of concern in the program, such as community costs associated with continued flooding, hazard protection -60- value of critical natural resources, alternative manage- ment strategies, etc. Fact sheets might also be used to outline the consequences of alternative approaches and draw upon the experience of other communities where appropriate. • Technical Bulletins : It might prove advisable to prepare one or more detailed publications about the technical aspects of the program, such as determination of flood- way and floodplain boundaries, and distribute these to advisory committee members and other specialized interests. Individuals responsible for developing publications will want to be aware of the many publications already developed by FEMA, by the state agency, and by others (such as those developed for The Conservation Foundation's training program) Preparation of publications can be costly. Use should be made of existing general materials whenever possible, with new publications focusing on the specific community situation. The FEMA Regional Office may be able to help locate appropriate materials. NEWSLETTERS A newsletter should be published at regular intervals and mailed to persons and organizations on the mailing list (or on a list compiled by community leaders). For ma-ximum utilization, the newsletter might be designed as a slip sheet that can be distributed with organizational mailings. A newsletter is usually started early in the planning stages and continued throughout the planning process. It is an excellent way of reporting a variety of news to those either interested in or whom may become interested in the Flood Hazard Management planning. Some of the types of articles and information appropriate to newsletters include: general water resource and flood hazard management news; feature articles explaining alternative programs; summaries of relevant workshops and meetings, hearings, meetings and workshop notices; reports or recommendations of a citizens advisory committee; and letters to the editor. INFORMATION DEPOSITORIES The local governmental agency might find it useful to maintain a central information file or depository which includes significant program planning documents (such as relevant maps, proposed ordinances, etc.). Ideally, these depositories should: • be in buildings (such as libraries) whose hours openly facilitate community use; - -61- ^ • have copying machines on the premises; • in larger communities be in a number of locations; • for more complex projects have staff support (perhaps volunteer) to assist any search for materials. SPEECHES A number of forums can be selected for speeches and audio- visual presentations on the flood hazard management program. Appropriate forums include service clubs, regular meetings of civic groups, churches, environmental organizations, chambers of commerce, and educational institutions. A speakers' bureau including authorities on several aspects of the planning pro- cess should be organized. The local official, Planning Commissioners, members of his technical staff, advisory committee members, and other community leaders knowledgeable about the planning should be invited to participate. Speakers should possess effective speaking ability and be able to tailor their remarks to the interests of the groups to be addressed. Presentations should be prepared on a variety of topics, and then be used as a basis for individual talks. Handouts, slide shows, and exhibits will assist in making a speaker's presentation more interesting and understandable. EXHIBITS Exhibits are visual displays which may be as simple as maps, charts, and diagrams or as sophisticated as a walk- through maze which allows the participant to make alternative selections regarding the future growth and character of his community. Simple exhibits may be used in conjunction with public meetings, hearings, speeches, or seminars. More sophis- ticated displays may be stationed in public buildings or shopping malls where they can reach large numbers of people. Large exhibits should be designed to both provide information and receive public input. They are best managed if constructed so they do not require an attendant. REACTIVE/ INTERACTIVE/DIALOGUE MECHANISMS Most of the mechanisms described below can be considered reactive or interactive depending on how the information obtained will be used: Will the mechanism be used simply to obtain public response to an agency decision (reactive) or also to allow an agency to respond to considerations posed by the public (inter- active) ? - 62- Functional two-way communication can help keep officials in constant touch with the needs and expectations of the public. Basic organizational and administrative techniques, such as those discussed below, can provide the framework for public involvement CONSULTATIONS The word consultation means the act of seeking advice and exchanging views. A variety of formal and informal mechanisms can be utilized to fulfill the consultation requirements of public participation regulations. Some of these mechanisms are: INFORMAL CONSULTATIONS Face-to- face interviews or conferences, are useful both for transmitting information and for receiving public input. Consultations will be needed throughout the planning process, but particularly in its early stages. Interested citizens and organizations should initiate discussions with governmental decision makers when they have information to offer, or issues to be resolved. Consultations initiated by citizen organizations often will be most useful if arranged on an ad hoc basis covering specific issues of concern to that organization. Such activi- ties will often be particularly well-received by a governmental agency when they involve a number of different organizations representing a variety of interests. On the other hand, effec- tive advocacy of a particular position may require that the organizations requesting the consultation come from similar interests. TASK FORCES A task force is usually a small group of people, including some with special expertise, which is assigned to research or resolve a specific problem in a limited time frame. Task forces may look at problems which are generally outside the scope of a typical local land use planning process, such as potential increase in a community's future flooding problems resulting from upstream development. -63- ^ Frequently the work of a task force will require some understanding of technical issues relating to flood hazard management. With appropriate assistance from staff involved in the local planning efforts, citizens' organizations are often able to study problems and arrive at creative solutions that might not otherwise be considered to be politically accep- table. The problem to be considered by a task force should be clearly defined before its members commence work. A work schedule should be prepared, and a fair cross-section of knowledgeable persons representative of a range of viewpoints should be selected to serve. Task force members should be fur- nished with sufficient background information to enable them to thoroughly understand the problem at hand and to deal with it in a short period of time. One person (either on the task force or serving as staff to the task force) should be appointed to formally summarize the results, including any missing data or unresolved issues. WORKSHOPS A workshop is a small group meeting at which all parti- cipants have some familiarity with the topic to be discussed and are afforded the opportunity to comment in considerable detail. Such meetings are particularly useful in the middle stages of the planning process when the basic facts are known, but the alternative proposals have yet to be thoroughly examined Workshops require substantial preparation time to be successful, but offer one of the most useful ways to explore in depth what people think about the ramifications of the flood hazard manage- ment program. In order to ensure a successful workshop, the organizer should undertake the following preparations: • succinct definition of the objectives of the workshop. What are participants expected to accomplish; • preparation or identification of materials to be distributed to participants before the workshop that will facilitate discussion during the workshop; • a briefing of speakers and resource people on what their roles are to be and what information they will present; • attention to the administrative details of the workshop to minimize confusion and maximize the -64- comfort of participants (i.e., Will the workshop take place over a meal time? Will meals be pro- vided? If not, where can participants go to quickly grab a bite to eat?, etc.) SURVEYS Several kinds of surveys can be used in planning for flood hazard management. A technical survey might be designed to elicit information from those with technical knowledge (such as local and/or state agencies) to provide data on how much they spend each year on flood disaster related projects. A general survey designed to gauge public opinion and pinpoint community values and goals might be circulated before selection of alter- natives in order to determine public response to such alternatives as acquisition and relocation of flood prone properties. Or residents might be asked to respond to questions regarding the extent of past flooding damages, amount of flood insurance claims, etc. Data collection through surveys can be very useful. In the Buffalo, New York Water Quality Management Plan for example, a survey revealed a depth of public support for improved water quality that led to stronger implementation recommendations than the decision makers would have otherwise supported. Surveys can also be expensive and time consuming. Those planning to conduct a survey should consider using academic resources as a source of volunteer assistance. For example, university students may be available to help in the preparation of a survey including pre-testing that survey. High school classes, or scouting groups might be willing to help distribute a survey and compile resulting data. CITIZEN ADVISORY COMMITTEE A formally constituted Citizens' Advisory Committee (CAC) has the potential for serving as an institutionalized consul- tation mechanism with the ability to provide continuous input to each stage of the planning process. If properly balanced and adequately staffed (representing a broad base of community interests), a CAC may ensure that important knowledgeable interests in the community will have continuing input into the planning process. Citizens' advisory committees have been utilized in various environmental programs throughout the years, and they have been the subject of considerable well-founded criticisms. The cri- ticisms leveled at CAC's have basically fallen into the following three categories. -65- • Their membership is often dominated by interests with an economic stake in the issues under consideration. While CAC's may be designed as a means for regularizing and institutionalizing the input of those with limited access to the decision-making process, they frequently do not achieve those goals. • A CAC may become a barrier to public participation if it is viewed by the sponsoring agency as the whole public participation program. If the local government only consults with the CAC, then the decision maker simply receives the thoughts of another group of people who may or may not represent the general public. • A CAC may be ineffective if their role is poorly de- fined, or staff support is inadequate, regardless of whether or not it is appropriately constituted. Citizen organizations should be careful not to blindly promote a CAC as a key activity of a public participation program. If CAC's are selected as a public participation method, be sure to give equal attention to the makeup of the committee, functions of the committee, and its staff support. A number of questions will have to be carefully resolved within the community as the advisory committee is being for- mulated. • membership (what economic interests are represented? What types of local government officials, public interest representatives?) • size (will the advisory committee have 10 members or 30 members?) • role and responsibilities (will the advisory committee have some responsibility for the execution of the public involvement program? To what degree will the advisory committee periodically expand its membership through ad hoc task forces?) The CAC should be appointed in the early stages of the planning process. It will establish a necessary communication link between the local officials and the public; provide a valuable forum for reconciling varying viewpoints; analyze, review and make recommendations; and reflect community values and goals during the planning stages. The CAC may also assist in the development of a public participation workplan, advise on politics, and participate in public meetings, workshops, and seminars. -66- It is important that the committee's role be established early in the planning-process. To be fully effective, the com- mittee must have direct input into all major decisions affecting the plan. Their value will be greatly reduced if they become only a reactive panel. If possible, all CAC activities should be funded, and adequate staffing should be provided. PUBLIC MEETINGS Public meetings afford an opportunity to introduce and stimulate interest in flood hazard management planning. They also afford the chance to clarify issues and give concerned citizens a forum in which to present their questions and air varying points of view. Meetings should be scheduled throughout the planning process to provide information as well as receive citizen's opinions. They provide a valuable opportunity to explore the environmental, social, economic, legal, and political ramifi- cations of various alternatives considered during the planning stages . These meetings can take a variety of forms, for example: • meetings designed to accomplish a task; • meetings designed to identify and negotiate conflicts; • open forums simply intended to air a variety of viewpoints; and • large mass meetings to present basic information. Public meetings also may be sponsored in different insti- tutional frameworks. For example: • the Citizens Advisory Committee may hold a working public meeting designed to broaden input from other publics on specific issues; • the local officials may hire the local chapter of the League of Women Voters to sponsor an open forum on specific issues; • an already scheduled town meeting may focus its attention on flood hazard management issues needing resolution. ^ -67- CAC's should normally play a role in formal public meetings so that they can receive input from the public and effectively advocate legitimate public interest. CHARETTES One of the more sophisticated and creative consultative mechanisms, charette is an intensive brainstorming session in which a number of people representing different interests get together to define problems and come up with solutions. It may last anywhere from a couple of hours to a few days, and par- ticipants are given no breaks. In its manual, Citizen Participa- tion Techniques, the Institute for Participatory Planning (Laramie, Wyoming) list the following characteristics of a successful charette: • problems can serve as a catalyst to focus peoples' attention and facilitate discussion; • there should be large and small meeting rooms if more than a few people are involved. Most of the work will be done in small groups; • all kinds of materials should be available, par- ticularly roles of paper and magic markers; • all food should be brought in. Some breaks for "cat naps" should be made available; • planners, environmental specialists and other technicians should be sprinkled among the lay people to facilitate meaningful discussion. TRAINING MECHANISMS Three of the most common training mechanisms are: Seminars -- as described here are essentially training exercises designed to assist a small group in understanding the importance of community flood hazard management and the components to be considered in developing a truly comprehensive program. The seminars may be repeated several times with dif- ferent audiences and may be planned by concerned citizens or by local government. The purpose of the seminar is to convey necessary information early in the planning stages, so that citizens who will continue to be involved will be knowledge- able about the issues and able to participate more effectively. Seminars or training sessions should be held by the local government official for advisory committee members, task forces local government staff, and others active in the planning process. -68- Conferences -- involve the presentation of information to a medium to large audience in a manner that facilitates the group's understanding of issues that need resolution. Con- ferences may combine techniques common to public meetings, workshops and seminars. The key ingredient, however, is a formal learning experience that will assist audience parti- cipants in understanding the issues that must be resolved before decisions can be made. Simulation and Games -- one of the most sophisticated public involvement mechanisms is the simulation of actual planning sit- uations as a technique for mediating conflict and for training citizen participants and planners with differing points of view. A central goal of many public participation programs is to create forums for the development of a consensus on the best solution to the community's flooding problems. Creating a con- sensus for whatever solution emerges from the planning process requires a highly complex interplay of political forces. Sometimes it is possible to stimulate these interactions in a less-charged atmosphere by developing a "let's pretend" situ- ation which has been highly simplified to permit acting out the interplay of forces. The simulation will often require the hiring of a spec- ialist to develop the game and conduct the activities. BUILDING A COALITION One of the most effective ways citizen organizations can utilize the mechanisms described above is to build a broad- based coalition within their community to affect the decision- making process. An organization's various efforts to affect the decision-making process will be viewed more favorably by the general public and by the local government grantee if it is evident that a broad-base of community support is involved. Whether you decide to hold a workshop or seminar or to establish a task force, you will wish to consider expanding the number of organizations and individuals involved in such an activity. Building such a coalition will involve informal meetings with a number of different interests in order to establish common points of concern. Building a coalition may not mean that all organizations agree with all or even most of the possible positions vis-a-vis flood hazard management. It may simply mean that the organi- zations forming the coalition agree to disagree on certain issues, have identified certain issues they have in common, and share the objective to regularly communicate with the decision-making body. y -69- PUBLIC HEARINGS Public hearings are normally a reactive mechanism and are meant to give individuals and organizations a formal oppor- tunity to express their opinions on an issue immediately prior to decision-making. Although in theory most public hearings are scheduled just before decision-making, in reality they usually take place after the staff has completed its work and has arrived at a tentative conclusion. All too often the burden is on the public to prove that a different conclusion is warranted. Public hearings have been criticized not only because of the heavy burden of proof on the public to change an agency course, but also because the manner in which they are handled often discourages rather than encourages citizen input. Officials responsible for public hearings may wish to consider holding one earlier in the decision-making process than is requierd by regulation. This approach would give officials the opportunity to better consider and respond to public input before finalizing recommendations. USING EXISTING INSTITUTIONS FOR PUBLIC INVOLVEMENT In addition to the tools for public involvement in the flood hazard management planning process discussed in preceding sections, there will be a number of opportunities for affecting final plans outside the formal planning process. We cannot hope to describe the range of opportunities available because they will vary enormously depending upon the institutional structure of your community and your community's relationship to other state and regional governments. In constructing a public participation program, you should examine the various governmental and non-governmental tools for decision-making that exist in your community and tailor your program to make maximum use of these tools. TOWN MEETINGS New England towns and villages annually hold town meetings in the spring to approve the yearly budget and specific actions or programs to be undertaken by the Town Council or Board of Selectmen. The town meeting might be used togain approval for local expenditures to acquire and relocate flood-prone properties or decisions to otherwise regulate development in flood hazard areas. In many New England towns, the ordinances required to implement the NFIP must be brought before the town meeting. -70- Citizens who wish to be involved in flood hazard manage- ment planning will wish to participate in all town meetings in which relevant issues are on the agenda. In addition, if flood hazard management is not on the agenda, local decision- makers might be responsive to requests that it be added. A New England town meeting may offer a unique opportunity to reach a broader constituency in the community than is possible at other times. CONSERVATION COMMISSIONS Conservation Commissions, like town meetings, are unique to the northeast and may significantly influence flood hazard management planning. Commissioners have the authority to review land use management proposals and environmental impact statements (if an EIS is prepared) and to assess the natural resource implications of the proposed program. They will probably also have a wealth of data available to assist citizens in making their own determinations regarding the environmental impact of a proposed program. PLANNING BOARDS AND COMMISSIONS Many communities will have some type of planning and/or zoning board or commission to develop and/or approve economic development plans, land use plans, or individual requests for zoning. These agencies should be integrally involved if not solely responsible for developing a community flood hazard management program or at least determining whether or not the proposed program is consistent with other local plans. Planning boards and commissions frequently have regular meetings which are open to citizens. In such meetings, citizens may raise questions about the implications of certain aspects of the Flood Hazard Management Program. Such boards and commissions may not have much power or authority in a community. Concerned citizens, however, can exert considerable influence to insure better coordination between the Planning Commission and those planning for flood hazard management, thus ensuring these programs are more re- sponsive to broader planning concerns. -71- REGIONAL PLANNING AGENCIES Most areas of the country now have regional planning agen- cies of some kind. These agencies will have the responsibility for conducting an initial review (known as A-95 Review) of FIA flood insurance studies, state and local floodplain management regulations, and any proposed federal program or activities which may impact floodplains to assure consistency with other local and regional plans and to assess environmental impacts. The A-95 Review Process provides regional planning agencies with the opportunity to review and comment on a local floodplain management program from a regional perspective, but the recommendations generally are not legally binding. CABLE TELEVISION In a number of communities around the country, local cable TV stations have sponsored regular public-service programs pro- duced in the community and dealing with issues of special local interest and concern. Local groups could develop programs focusing on the flood hazard management planning process and, for instance, discuss the local and regional flooding problems being addressed and present controversial issues. Several communities are experimenting with the use of a two-way capability that will allow cable TV viewers to transmit back to local stations, offering a feed-back opportunity not normally associated with television. In flood hazard management planning areas with a scattered rural population, this two-way capability may significantly add to the usefulness of a public meeting if it is transmitted on TV. The two-way capability of cable TV is still in the exper- imental stage, and may not be widely available to you. 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S t t lI 1 5 Ij A 13 3 - -■ n to - oi - oi ' / .. , \ \ 3J H o o § o U f t i-t t i~0 ^ -< -< ° /dbN h *T T"T T ' - 01 ow > S £ m m *Sj~' ■ IlBEII£3^32CS " "__"-" it " aa ^>tn^-n^'^ — , ■**. C« 3k 3D 3J <** ^ H m 30 tj — o w "" -n O — 1 Tl t~ f— Tl "Tl z — «-* o o U» d w tJ O 3t ^^ Z n rn O O o o en o en en en en en 8 en CD en at 8 8 en CO FEDERAL EMERGENCY MANAGEMENT AGENCY Federal Insurance Administration CITY OF FLOODVILLE, Ml (FLOOD CO.) FLOOD PROFILES RIVER RAISIN JOINS 08F JOINS 10F FEDERAL EMERGENCY MANAGEMENT AGENCY Federal Insurance Administration CITY OF FLOODVILLE, Ml (FLOOD CO.] 400 APPROXIMATE SCALE 400 800 1200 FEET I 1 FLOOD BOONDARY AND FLOODWAY MAP JOINS 10 FEDERAL EMERGENCY MANAGEMENT AGENCY Federal Insurance Administration CITY OF FLOODVILLE, Ml IFLOOD CO.] 400 APPROXIMATE SCALE 400 800 1200 FEET T=T 3 FLOOD HAZARD BOUNDARY MAP H -09 FLOOD INSURANCE RATE MAP I -09 EFFECTIVE DATE UNIVERSITY OF ILLINOIS-URBANA 3 0112 105179797