The History of the National Flood Insurance Program Mapping, and How We Got to Where We Are Today

Association of Montana Floodplain Managers (AMFM) Conference –Kalispell, MontanaMarch 12, 2020

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Presenters

▸Brian Koper▸ Emergency Management Specialist (Mitigation), Engineering Services Branch (HQ/IM-RM-EM-ES)▸ Federal Emergency Management Agency▸ 400 C Street SW, Suite 6SE-1008▸ Washington, DC 20472-3020▸ 202-733-7859 (Mobile, Primary)▸ 202-646-3085 (Desk)▸ Brian.Koper@fema.dhs.gov

▸ Thomas W. Smith, P. E. ▸ FEMA Community Engagement and Risk Communication (CERC) ▸ Resilience Action Partners▸ 703.317.6267▸ Alexandria, Virginia▸ tsmith@mbakerintl.com

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National Flood Insurance Program History

▸National Flood Insurance Act of 1968

▸Flood Disaster Protection Act of 1973

▸Coastal Barrier Resources Act of 1982

▸National Flood Insurance Reform Act 1994

▸Flood Insurance Reform Act 2004

▸Biggert-Waters Flood Insurance Reform Act of 2012

▸Homeowner Flood Insurance Affordability Act of 2014

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National Flood Insurance Program Background

▸A voluntary program

▸FEMA develops Flood Insurance Rate Maps that depict flood hazards

▸A community adopts and enforces a floodplain management ordinance; => Federally-backed flood insurance is available to property owners & renters in the community

▸Mandatory purchase requirements

▸A Federal, State, and Local partnership

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National Flood Insurance Program,a Voluntary Program

▸ Joining the National Flood Insurance Program (NFIP) is an important step toward reducing a community’s risk of flooding and making a speedier, more sustained recovery should flooding occur.

▸ The NFIP also allows property owners within a participating community to purchase NFIP flood insurance and receive disaster assistance for flood-related damage.

▸ Participation is voluntary and more than 22,000 communities have already agreed to adopt and enforce floodplain management ordinances that provide flood-loss reduction building standards for new and existing development. See the Community Status Book for a list of all participating communities.

▸ If your community does not participate, please read Joining the National Flood Insurance Program and consider contacting your FEMA Regional Office or the NFIP State Coordinating Agency for information on how to join.

▸ https://www.fema.gov/floodplain-management-information-communities

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National Flood Insurance Program Goals

▸Reduce the loss of life and property caused by flooding

▸Reduce rising disaster relief costs caused by flooding

▸Maintain the natural and beneficial functions of floodplains

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Flood Hazard vs Flood Risk

▸Hazard ‘is something causing unavoidable danger, peril, risk, or difficulty’

▸Risk‘is a measure of the likelihood and severity of undesirable consequences’

Flood Hazard is used in this connotation as describing/depicting the flood that causes the undesirable consequences. For example, flood hazard could be flood extent and likelihood (flood maps); flood depth and likelihood (depth-frequency); flood volume/duration and likelihood (flow-frequency), etc.

Flood Risk is used in this connotation as the risk associated with flooding of riverine and coastal floodplains, and urban/rural flooding that is the result of impeded drainage

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Flood Risk

During Any Year10% chance of flooding1% chance of flooding

0.2% chance of flooding

During 30-Year Mortgage95% chance of flooding26% chance of flooding6% chance of flooding

HouseABC

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Information Shown on NFIP Maps

▸Special Flood Hazard Areas (SFHAs)▸Non-Special Flood Hazard Areas (NSFHAs)▸Base Flood Elevation (BFE) Data ▸Flood Insurance Rate Zones (Zones)▸Floodway Boundaries (Floodway)▸Cross-Sections/Transact Lines (CSL/TL)

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Information Shown on NFIP Maps

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Types of NFIP Maps/Data

▸Flood Hazard Boundary Maps (FHBMs)▸Flood Insurance Rate Maps (FIRMs)▸Flood Boundary and Floodway Maps FBFMs)▸Digital Flood Insurance Rate Maps (DFIRMs)▸National Flood Hazard Layer (NFHL)▸Flood Insurance Rate Map (FIRM) Databases

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Flood Hazard Boundary Maps (FHBMs)

FHBMs – show Zone A areas based on floodprone quadrangles (USGS), floodplain soil maps (NRCS, formerly SCS), floodplain information reports (USACE), state or local provided data, etc. Flood Disaster Protection Act of 1973 required the Flood Insurance Administer to notify all NFIP communities of their SFHAs by issuance of FHBMs.

FHBM Index

FHBM Panel

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Flood Insurance Rate Maps (FIRMs)Pre-1985

▸ FIRMs – Prior to 1985 FIRMs and FBFMs were published separately. This Pre-1985 FIRM shows only the BFEs, Zones, and SFHAs (no Floodways).

FIRM Panel - 1981INSET

Showing BFEs, Zones, and SFHAs only

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Flood Boundary and Floodway Maps (FBFMs)Pre-1985

▸ FBFMs – Prior to 1985 FIRMs and FBFMs were published separately. This FBFM shows only the Cross-Sections, SFHAs, and Floodways.

FBFM Panel - 1981INSET

Showing Cross-Sections, SFHAs, and Floodways only

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Flood Insurance Rate Maps (FIRMs)Post -1985

▸ FIRMs – After 1985, the information shown on Pre-1985 FIRMs and FBFMs were combined on the FIRMs. The 1985 Flood Insurance Study Guidelines and Specifications for Study Contractors set the new requirements for the FIRM and FBFM information to be shown on the FIRM.

FIRM Panel - 2012INSET

Showing BFEs, Zones, SFHAs, and Floodway

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Digital Flood Insurance Rate Maps (DFIRMs)

DFRIMsShowing the new format for Flood Hazard Information

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What is a DFIRM?Flood Insurance Study (FIS) Text/Report (digital & hard-copy)

FIRM Panels(digital & hard-copy)

DFIRMDatabase

NationalFloodHazardLayer (NFHL)

Letters ofMap Revision

(LOMRs)

Effective LOMRs sewn into DFIRM priorto effective date

Future LOMRssewn into

NFHL directly

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DFIRM Mapping Layers

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National Flood Hazard Layer (NFHL)

▸ The National Flood Hazard Layer (NFHL) is a geospatial database that contains current effective flood hazard data. FEMA provides the flood hazard data to support the NFIP. This information can be used to better understand your level of flood risk and type of flooding. The simplest way for you to access the flood hazard data, including the NFHL, is through FEMAs Map Service Center (MSC) at https://msc.fema.gov/

▸ This view was captured using the NFHL Viewer on the MSC Site.

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Enhanced Tools and Capabilities

Improved Map Service Center (MSC) interface National Flood Hazard Layer (NFHL) Viewer FIRMette FIRM Panel

Draft NFHL Viewer Draft NFHL Draft Changes Since Last FIRM

Flood Map Changes Viewer Preliminary Map Comparison Tool Preliminary Changes Since Last FIRM

Public Access to models through the Flood Risk Studies Engineering Library (FRiSEL)

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Create an NFHL FIRMette

NFHL FIRMettes are: Based on dynamically

updated data

NFHL is synced daily with all new mapping updates

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Draft Changes Since Last FIRM (CSLF)

Draft CSLF can be accessed through the MSC at https://msc.fema.gov/draft.

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Flood Risk Study Engineering Library (FRiSEL)

FRiSEL is available at: https://hazards.fema.gov/wps/portal/frisel

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Evolution of the NFIP and FEMA

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Evolution of NFIP Maps Over the Years

Emergency Program Maps

Regular Program Maps

National Flood Hazard Layer

----FIRMs/FBFMs-----

1973

1968

----FHBMs----

1985

----DFIRMs--------------------------------------NFHL-------------

2002

----Combined FIRMs--------------------------------------

2004

2020

NFI

P M

aps

Type

s

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Emergency vs Regular Program Maps▸ Emergency NFIP Program Maps

• Flood Hazard Boundary Maps – All Zone A Areas

▸ Regular NFIP Program Maps• Initial NFIP Maps were single community-based

(i.e. city, township, borough, tribe, unincorporated county, etc.)

• Separate Flood Insurance Rate Map (FIRM) and Flood Boundary and Floodway Map (FBFM)

• Combined FIRM/FBFM – Post 1985• DFIRM Mapping and Database• Moved to Countywide Mapping (including all

jurisdictions in the County)• Watershed Based Studies under Risk Map Program• Development of the National Flood Hazard Layer

Emergency Program

Regular Program

Residential (1-4 family)BuildingContents

$35,000$10,000

$250,000$100,000

Other ResidentialBuilding $100,000 $500,000

Non-ResidentialBuildingContents

$100,000$100,000 $500,000

$500,000

Contents $ 10,000 $100,000

Insurance Limits

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Regular Program Maps

▸ Regulatory Products• Flood Insurance Study Report• Flood Insurance Rate Maps• DFIRM Database

▸ Flood Risk Products• Flood Risk Report• Flood Risk Map• Flood Risk Database

Changes Since Last FIRM Flood Depth and Analysis Grids Areas of Mitigation Interest Flood Risk Assessment Data

Flood Risk ProductsTraditional Regulatory Products

NFIP actions include determining insurance purchase/rate requirements for a property or enforcing minimum building standards for construction in the SFHA.

Provide additional flood risk information and to support a community’s overall floodplain management and hazard mitigation strategies and plans.

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FEMA Guidance – 60’s through 90’s

Study Contractor Guidelines

Technical Evaluation Contractor Guidelines

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FEMA Guidance – Post 90’s

Flood Hazard Mapping Partner’s Guidelines

FEMA Procedure Memos

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FEMA Guidance – Current

Risk_Map_GS_Master_Index_Workbook_(November_2019)_V3link: https://www.fema.gov/media-library/assets/documents/94095

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FEMA’s Risk MAP ProgramMapping, Assessment, Planning

Through collaboration with State, Local, and Tribal entities, Risk MAP will deliver quality data that increases public awareness and leads to action that reduces risk to life and property

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Floodplain Mapping Myths

AREAS OF SHALLOW FLOODINGLESS THAN 1 FOOT IN DEPTH

DON’T HAVE FLOOD RISK

DRAINAGE AREAS OFLESS THAN 1 SQUARE MILE

DON’T FLOOD

MY AREA DOESN’T FLOOD

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Purpose of NFIP Maps

NFIP Maps Have Two Primary Purposes

▸Floodplain Management

▸Flood Insurance

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Floodplain Management Requirements

https://www.fema.gov/floodplain-management-requirements

https://www.fema.gov/floodplain-management/

• Floodplain management is the operation of a community program of preventive and corrective measures to reduce the risk of current and future flooding, resulting in a more resilient community.

• These measures take a variety of forms, are carried out by multiple stakeholders with a vested interest in responsible floodplain management and generally include requirements for zoning, subdivision or building, building codes and special-purpose floodplain ordinances.

• While FEMA has minimum floodplain management standards for communities participating in the National Flood Insurance Program (NFIP), best practices demonstrate the adoption of higher standards which will lead to safer, stronger, more resilient communities.

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• Once FEMA provides a community with the flood hazard information upon which floodplain management regulations are based, the community is required to adopt a floodplain management ordinance that meets or exceeds the minimum NFIP requirements.

• The overriding purpose of the floodplain management regulations is to ensure that participating communities take into account flood hazards, to the extent that they are known, in all official actions relating to land management and use.

• The specific requirements are in Section 60.3 of the NFIP regulations, and apply to communities as follows:

60.3 (a) - FEMA has not provided any maps or data60.3 (b) - FEMA has provided a map with approximate A Zones60.3 (c) - FEMA has provided a FIRM with BFEs60.3 (d) - FEMA has provided a FIRM with BFEs and a map that shows a floodway60.3 (e) - FEMA has provided a FIRM that shows coastal high hazard areas (V Zones)

• It is important to note that these requirements are minimums. In addition, these requirements are cumulative

https://www.fema.gov/floodplain-management-ordinances

Floodplain Management Requirements; Ordinances and NFIP Regulations

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https://www.fema.gov/national-flood-insurance-program/How-Buy-Flood-Insurance

Flood Insurance Requirements

The National Flood Insurance Program’s Mandatory Purchase Requirement: Policies, Processes and Stakeholders:

https://www.fema.gov/media-library/assets/documents/9609

The Flood Disaster Protection Act of 1973 and the National Flood Insurance Reform Act of 1994, as passed by Congress, mandate that federally regulated, supervised, or insurance financial institutions and the Federal Agency lenders require flood insurance for buildings located in a Special Flood Hazard Area (SFHA) within communities participating in the National Flood Insurance Program

https://www.fema.gov/faq-details/Mandatory-Flood-Insurance-Requirement/

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Communication, Access, and Updatesto Flood Hazard Mapping Information

▸NFIP Mapping Regulations – 44 CFR Part 65•Section 65.3•Section 65.4•Section 65.5 and 65.6

▸Mapping Changes and Vehicles of Map Change▸Useful Links to FEMA/NFIP Mapping Information

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NFIP Mapping Regulations – 44 CFR Part 65

▸ Part 65 of the NFIP regulations relates directly to identification and mapping of special hazard areas.

▸ The purpose of the Part is to outline the steps a community needs to take in order to assist in FEMA’s effort in providing up-to-date identification and publication of special flood hazard areas.

▸More specifically, it provides the procedures and engineering data requirements for the identification and revision of mapping flood hazard data.

• Section 65.3 = Requirement to submit new technical data• Section 65.4 = Right to submit new technical data• Section 65.5 = Revision to SFHA with no change to BFEs• Section 65.6 = Revision to BFEs

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Section 65.3Community Requirement to Submit Data

▸ “A community's base flood elevations may increase or decrease resulting from physical changes affecting flooding conditions. As soon as practicable, but not later than six months after the date such information becomes available, a community shall notify the Administrator of the changes by submitting technical or scientific data in accordance with this part. Such a submission is necessary so that upon confirmation of those physical changes affecting flooding conditions, risk premium rates and flood plain management requirements will be based upon current data.”

▸ FEMA can use this data to either physically update the FIRM (a PMR), issue a LOMR, or use the information to physically update the FIRM at a future date.

▸ So, the communities must submit this data in accordance with their adopted floodplain management ordinances.

▸Not a requirement for a LOMR submittal.

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When is Submittal of a LOMR Required

▸ LOMRs required per 44 CFR 65.12(c) • Upon completion of the proposed encroachments, a community shall provide as-

built certifications in accordance with the provisions of §65.3 of this part. The Federal Insurance Administrator will initiate a final map revision upon receipt of such certifications in accordance with part 67 of this subchapter.

▸ LOMRs – typically submitted following CLOMRs which involved proposed projects or other changes to the FIRM that reduce the SFHAs, BFEs, and/or floodways in communities. NFIP communities requiring requestors to submit LOMRs in this manner, help them meet their requirements under 44 CFR 65.3.

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Section 65.4(a)Right to submit a LOMR

▸ The right of a community to submit new non-regulatory technical data is specified under 44 CFR 65.4(a) and states the following:

• “A community has a right to request changes to any of the information shown on an effective map that does not impact flood plain or floodway delineations or base flood elevations, such as community boundary changes, labeling, or planimetric details. Such a submission shall include appropriate supporting documentation in accordance with this part and may be submitted at any time.”

▸ Data submitted by a community related to changes in non-regulatory information (information other than floodplain/floodway delineations or BFEs) will be accepted by FEMA.

▸ FEMA will typically keep this data on file for incorporation into the next map update for the community, but occasionally may process a LOMR to incorporate the new data.

▸ Also, LOMR requests may include non-regulatory data submitted along with changes to regulatory flood hazard information.

▸ In these cases the non-regulatory data will be incorporated into the revised FIRM panels and FIS attachments if it does not create a discrepancy with the non-regulatory data on adjacent unrevised FIRM panels or FIS attachments.

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Assurance by NFIP Community of the Minimum Floodplain Management Requirements

▸ Paragraph 65.5(a)(4) • “Written assurance by the participating community that they have complied with the appropriate minimum

floodplain management requirements under § 60.3. This includes the requirements that : ..…(iii) The participating community has issued permits for all existing and proposed construction or other development; and (iv) All necessary permits have been received from those governmental agencies where approval is required by Federal, State, or local law.”

▸ Paragraph 65.6(a)(14) • “The participating community must provide written assurance that they have complied with the appropriate

minimum floodplain management requirements under § 60.3 of this chapter. This includes the requirements that: …..(iii) The participating community has issued permits for all existing and proposed construction or other development; and (iv) All necessary permits have been received from those governmental agencies where approval is required by Federal, State, or local law.”

▸ Therefore, applications for Letter of Map Revisions (LOMRs) must have all applicable permits verified by the participating community.

The regulations under 44 CFR Part 65 states in both:

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“Accepted” Models for NFIP Maps44 CFR 65.6(a)(6)

▸ The NFIP regulations outline the criteria for a numerical model to be accepted by FEMA for National Flood Insurance Program mapping, specifically the three paragraphs of 44 CFR 65.6(a)(6) which we have described in our latest guidance, links:

• https://www.fema.gov/media-library-data/1537888714503-3f556061b84f26b86d286513240e8dd4/Guidance_Accepting_Numerical_Models_for_Use_in_the_NFIP_(Feb_2018).pdf

▸ And, please note we have a new model acceptance checklist to help guide the information to be submitted:• https://www.fema.gov/media-library-data/1520966727472-

8c05ecc18e141449aa79665641bd9fe3/Model_Acceptance_Checklist_Feb_2018.pdf

▸ And, for local certifying agencies, we have a suggested template for their use:• https://www.fema.gov/media-library-data/1538073163668-

29707cd852537d333e8e2f1640f25a46/Template_Local_Model_Certification_Letter_Template_(Feb_2018).pdf

▸ The certifying agency determines the jurisdiction of a model’s use for NFIP mapping. The certifying agency determines whether a model is locally accepted (e.g. state/community, or flood control district), compared to nationally accepted (e.g. federal agency).

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Mapping Changes and Vehicles of Map Change

These vehicles of map change can be accomplished by Physical Map Revisions (PMR) or Letters of Map Revision (LOMRs).

Flood hazards are dynamic and can change frequently over time. FEMA works with communities to collect new or updated flood hazard data and periodically updates flood maps to reflect these changes.

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Changes to Flood Insurance Rate MapsFlood Hazard Mapping Updates Overview Fact Sheet

Link: https://www.fema.gov/media-library/assets/documents/118418

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Useful Links to FEMA/NFIP Mapping Information▸ Link to FEMA Mapping and Insurance Exchange (FMIX)

https://www.floodmaps.fema.gov/fhm/fmx_main.html

▸ Link to FEMA Flood Map Service Center https://msc.fema.gov/portal/home

▸ Link to Fact Sheet on Flood Hazard Mapping Updates https://www.fema.gov/media-library/assets/documents/118418

▸ Link to FEMA National Flood Hazard Layer (NFHL) https://www.fema.gov/national-flood-hazard-layer-nfhl

▸ Link to Community’s Preliminary Flood Hazard Data https://www.fema.gov/view-your-communitys-preliminary-flood-hazard-data

▸ Link to Finding Standards, Guidance and Related Documents https://www.fema.gov/media-library/assets/documents/94095

▸ Link to Risk MAP Guidance and Standards Master Index Workbook (November 2019) https://www.fema.gov/media-library-data/1580314628785-918e3eefeb4441683311752ea5f22286/Risk_MAP_GS_Master_Index_Workbook_(November2019)_v2.xlsx

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