Coastal Services Center

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Risk and Vulnerability Assessment Steps Mitigation Opportunities Analysis and Extended Discussion Print Version

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What is Hazard Mitigation?

Hazard mitigation includes any action or initiative that reduces the potential of adverse impacts from hazards to people, property, and man-made and natural resources. For more information about hazard mitigation, disaster preparation and prevention, visit FEMA's library.

Why would I do this analysis?

This analysis focuses on identifying hazard mitigation opportunities to decrease or alleviate vulnerabilities, which were discovered in the previous steps, for critical facilities, and societal, economic, and environmental factors. This analysis will help you to determine which hazard mitigation opportunities will have a significant effect on future hazard vulnerability. Since it is not practical to mitigate for every vulnerability due to limited resources (i.e., funding, time, personnel, equipment, etc.), this analysis will help you prioritize which people, property, and man-made and natural resources are most susceptible to direct and indirect impacts, in order to protect them.

Give me an example of something I might do in this analysis.

Existing Development

Using FEMA Q3 data or Digital Flood Insurance Rate Maps (DFIRMs), you determine that 50 structures are located in the Special Flood Hazard Area (SFHA). Using local property tax assessment data, you then determine that ten of these structures are publicly owned (i.e., government buildings) and have a current National Flood Insurance Program (NFIP) policy. Ten are commercially owned and have an NFIP policy. Thirty are residential homes. Twenty of the homes have NFIP policies, and ten homes do not have NFIP policies because they are not required after the mortgage has been paid off.

From the tax assessment records, you also find out that the total value of these 50 buildings that are located within the SFHA is $5.5 million. This does not include the contents value. Contents value is generally estimated at 50 percent of the value of residential structures. Contents value is often greater than 50 percent of the value of commercial structures, as they may house raw materials, inventory, computer networks, equipment, etc. In speaking with the local NFIP coordinator, you determine that half of these structures have been repetitively flooded, which resulted in $3 million of structural damage and content loss, as well as emotional hardship.

Below, are examples of ways to decrease vulnerability through the use of hazard mitigation measures for the scenario above:

Outreach

• Letting people know that although NFIP policies are not required for buildings that do not carry a mortgage, it will help offset costs if the structure is flooded
• Offering workshops to show people how to retrofit their homes
• Work with local businesses to retrofit their facilities

Hazard Mitigation Plan

Identify and prioritize projects for which state and federal assistance for hazard mitigation may be requested following a presidentially declared disaster.

• Relocation and/or retrofit
• Relocation — relocate structures outside of the SFHA
• Elevation — elevate structures and/or electrical equipment, air conditioners, using ample freeboard, above the base flood elevation (BFE)
• Dry floodproofing — completely seal the exterior walls of a structure to prevent entry of floodwaters
• Wet floodproofing — use methods and materials resistant to floodwater damage. This is generally recommended for garages, basements, and public restrooms
• Sewer back-flow valve — install to prevent raw sewage from entering a building and/or floodwaters

Learn more about hazard mitigation success stories in Florida.

Learn more about how to protect your property from FEMA.

Future Development

Using land cover data and land cover change over time (if available), local zoning records, and future development records (if available), identify undeveloped land located in high-risk areas. In your review of the data, you determine that 12 parcels are zoned for residential use. Using FEMA Q3 data or Digital Flood Insurance Rate Maps (DFIRMs), you determine that two of these parcels are located in SFHAs.

This information can be used to take action to decrease the potential for future damage and loss through the following mechanisms:

Zoning

• Designate as open space — designate these areas for parks or recreational uses only
• Reduction of developable areas — increase the minimum lot size or reduce the number of dwellings per acre
• Bonus and incentive zoning — the practice of allowing developers to exceed limitations imposed by current regulations (i.e., building height, floor area or density) in return for specific concessions
• Agricultural zoning — allow land to be used only for agricultural purposes

Design

• Construction standards — use appropriate construction standards to withstand hazard impacts
• Building codes — ensure that appropriate building codes are implemented and enforced, so the structure is able to withstand hazard impacts

Stormwater Management

• Retention ponds — construct retention ponds or basins to catch and filter surface runoff
• Impervious surface limits — construct narrower roads, restrict land clearing, limit parking lot size and densely clustered development. Use porous materials (brick pavers, gravel) instead of non-porous materials (asphalt, cement) where possible

What are my steps?

1. Locate and gather data
2. Identify people, property, and resources that are vulnerable
3. Identify undeveloped land and existing zoning
4. Assess the status of your existing flood insurance program participation
5. Identify hazard mitigation measures

What data will I need?

• Hazards
• Land-use
• Tax Assessors
• Structural and/or Operational Assessments
• Others

Where can I obtain these data and information?

• Data and Information Resources
• Florida Division of Emergency Management GIS
• Florida Department of Environmental Protection GIS Data
• Brevard County Property Appraiser's Office Data
• Volusia County Government GIS
• Volusia County Parcel Data

Who do I need to work with? What agencies can help me locate the necessary data and information?

State and Local Emergency Management Officers, County/City Building and Planning Department (Codes and Standards), NFIP Coordinator, CRS Coordinator, County/City Public Works, Finance Department, Local Business Leaders, Coastal Zone Management Officers, Academia, others.

Potential Partners/Stakeholders List

Local (county or municipality)

• Entity with authority to direct and implement the Hazard Mitigation Plan
• Mayor
• County, City, and Town Manager
• Chamber of Commerce
• Regional/County/Local Emergency Managers
• National Flood Insurance Program Coordinator
• Community Rating System Coordinator
• Coastal Zone Management
• Regional/Local Planning Commissions
• County/City Planning Department
• County/City Public Works Department/Utilities
• Electrical Membership Coops.
• County/City Engineering Department
• Finance Department
• Construction Development (contracts, permits)
• Building and Zoning
• Tax Assessor
• Public Safety/Fire/ Law Enforcement
• Code Enforcement
• Parks and Recreation
• GIS staff
• Health Department
• American Red Cross
• Economic Development Administration (local chapter)
• League of Municipalities/Cities
• Local Business Leaders
• Developers
• General public (citizens)
• Special Interest Groups
• Media
• Land Trusts/Nature Conservancies
• Board or Realtors
• Small Business Administration
• Tourism Development Council
• Academia

Regional (state or states)

• Coastal Zone Management Program
• State Emergency Management Agencies - State Hazard Mitigation Officer
• State Floodplain Manager
• State Hurricane Program Manager
• State Earthquake Program Manager
• Department of Insurance
• State Natural Resource Agencies (departments and divisions vary by State)
• State Department of Transportation
• State Ports Authority
• State Historic Preservation Office
• National Guard
• Law Enforcement
• Division of Solid Waste
• Division of Hazardous Waste
• Division of Public Works (Waste Water and Water Treatment)
• Division of Water Quality
• GIS Clearinghouse staff
• State Climatologist
• Academia

National (federal)

• NOAA National Weather Service (NWS)
• U.S. Department of Homeland Security
• Federal Emergency Management Agency (FEMA) - Recovery (Infrastructure and Environmental), Flood Insurance and Mitigation Administration
• US Fish and Wildlife Service (USFWS)
• US Army Corps of Engineers (USACE)
• US Geological Survey (USGS)
• Federal Highway Administration/ Federal Department of Transportation (FWA/FDOT)
• US Coast Guard (USCG)
• Environmental Protection Agency (EPA)
• Small Business Administration (SBA)
• National Historic Preservation Office (NHPO)
• US Military

Extended Discussion

Objective(s):

Analyze the maps of vulnerable people, property, and resources; identify hazard mitigation opportunities to reduce adverse impacts from hazards

Purpose:

Target priority risk areas for hazard mitigation options

Primary Steps:

1. Locate and gather data
2. Identify people, property, and resources that are vulnerable
3. Identify undeveloped land and existing zoning
4. Assess the status of your existing flood insurance program participation
5. Identify hazard mitigation measures

Description:

This analysis focuses on identifying mitigation opportunities to decrease or eliminate vulnerabilities noted in the previous analyses, which will be addressed during the community's hazard mitigation and comprehensive planning. Hazard mitigation is a concept that includes a range of actions that, when comprehensively implemented, increases a community's ability to recover from disasters. By using a geographic information system (GIS) to compile and analyze risk and vulnerability data, a baseline can be established to evaluate how well mitigation measures are working, and a GIS provides an easier means to add new data.

Hazard mitigation is best implemented through all phases of disaster planning, preparedness, response, and recovery. Although post-disaster mitigation presents an opportunity to repair facilities better than before or to relocate buildings out of harm's way, funding is often limited and there is great pressure to return the community to normal conditions as soon as possible. Therefore, it is important to identify which projects are of greatest priority before the disaster occurs, so the community can objectively apply for state and federal assistance.

Hazard mitigation can also be successfully implemented on a daily basis through comprehensive planning and land-use planning, by ensuring that adequate building codes and standards are implemented and enforced, by granting permits to construct developments outside of risk areas, by designating open space, by requiring that structures in high-wind zones have shutters or that buildings in the Special Flood Hazard Area (SFHA) are elevated above the typical flood level, and by informing property owners about available insurance and means by which to protect their families. It is extremely important to identify projects, partners, legalities, and potential funding sources before a disaster occurs to ensure that projects are selected objectively. If projects are selected at random or without full consideration of all potential projects and capabilities to mitigate them, it is possible to overlook mitigating a highly vulnerable facility or not having adequate resources for the project.

Some potential methods of assessing hazard mitigation opportunities include the following actions

• Identify undeveloped land located in high-risk areas to enhance future zoning and land use decisions. The preservation of undeveloped floodplains and wetlands allows these areas to serve as storm and erosion buffers and as temporary storage for floodwaters (The H. John Heinz III Center for Science, Economics and the Environment 2000). After a disaster, a community could assess prior zoning decisions in high-risk areas by calculating damage and losses in those areas. In the absence of a disaster, the community could use zoning information in conjunction with population data to determine the effects of new development (i.e., increased population and vehicles) on a community's disaster resiliency. For example, population growth in high-risk areas will impact evacuation measures and abilities, emergency shelter levels, and other response and recovery activities.
• Assess flood insurance program participation to determine the number of uninsured structures and target these properties to increase the number of standard flood insurance policy holders. Aggregate data are available from FEMA's NFIP. Although flood insurance will not prevent damages, it shifts some of the financial responsibility for disaster-related repairs to those who reside in floodplains.
• Prioritize critical facilities in high-risk areas for structural or nonstructural retrofitting, elevation, or relocation. Water, sewer, electric, fuel, and communications systems may also be buried or elevated.
• Identify populations that need special care and services to target predisaster outreach and accelerate postdisaster recovery program services and funding.

Examples of Hazard Mitigation

Structural Hazard Mitigation

• Relocation of facilities from hazardous locations
• Roads and bridges
• Utilities
• Buildings
• Slope stabilization to protect facilities
• Placement of riprap
• Installation of cribbing or retaining walls to prevent erosion of and deter flood waters (e.g., roadside, stream, etc.)
• Installation of soil retention blankets
• Protection from high winds
• Installation of hurricane shutters to protect windows
• Installation of hurricane clips
• Strengthening anchoring and connections of roof-mounted equipment
• Floodproofing of buildings
• Use of flood-damage-resistant materials
• Elevation of mechanical equipment and utilities
• Elevation of buildings
• Flood protection of bridges and culverts
• Using clear spans instead of multiple spans for bridge construction
• Installation of cut-off walls or headwalls on culverts
• Seismic protection
• Bracing of overhead pipes and electrical lines
• Anchoring nonstructural architectural elements such as parapets and veneers
• Bracing interior walls and partitions
• Protection of utilities
• Use of disaster-resistant materials for power poles
• Anchoring fuel tanks to prevent movement
• Elevation of equipment, control panels, and electrical services to prevent flood damage

Nonstructural Hazard Mitigation:

• Directing development through land-use planning, zoning, and subdivision regulations
• Limiting risk and increasing the community's capacity to recover through structure and property acquisition
• Directing development using other public spending measures
• Directing development with taxes, incentives, and other techniques
• Information dissemination
• Adopting and enforcing building codes
• Conducting outreach activities to educate the public on hazards, vulnerabilities, and hazard mitigation measures.

For more information about structural and non-structural hazard mitigation read the following publications:

Tools & Techniques: An Encyclopedia of Strategies to Mitigate the Impacts of Natural Hazards (PDF)

Tools & Techniques for Mitigating the Effects of Natural Hazards (PDF)

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